[Congressional Record Volume 141, Number 1 (Wednesday, January 4, 1995)]
[House]
[Pages H110-H112]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]




                         POLICIES OF THE CHAIR

  The SPEAKER. The Chair customarily takes this occasion on the opening 
day of a Congress to announce his policies with respect to particular 
aspects of the legislative process. The Chair will insert in the Record 
announcements by the Speaker concerning: first, privileges of the 
floor; second, the introduction of bills and resolutions; third, 
unanimous consent requests for the consideration of bills and 
resolutions; fourth, recognition for 1-minute speeches and special 
orders; fifth, decorum in debate; sixth, the conduct of votes by 
electronic device; and seventh, requests for leave of committees to sit 
during the 5-minute rule.
  These announcements, where appropriate, will reiterate the origins of 
the stated policies. The Speaker intends to continue in the 104th 
Congress the policies reflected in these statements. The policy 
announced in Congresses prior to the 103d Congress with respect to 
requests for committees to sit during the 5-minute rule is once again 
pertinent. The policy announced in the 102d Congress with respect to 
jurisdictional concepts related to clause 5(b) of rule XXI--tax and 
tariff measures--will continue to govern but need not be reiterated, as 
it is adequately documented as precedent in the House Rules and Manual.

                       1. Privileges of the Floor

       The Speaker's announced instructions to the former 
     Doorkeeper and the Sergeant-at-Arms in the 98th Congress on 
     January 25, 1983, and in the 99th Congress on January 21, 
     1986, regarding strict enforcement of rule XXXII, specifying 
     those persons having the privileges of the floor during 
     sessions of the House, will be applied during the 104th 
     Congress.


             announcement by the speaker, january 25, 1983

       The Speaker. Rule XXXII strictly limits those persons to 
     whom the privileges of the floor during sessions of the House 
     are extended, and that rule prohibits the Chair from 
     entertaining requests for suspension or waiver of that rule. 
     As reiterated as recently as August 22, 1974, by Speaker 
     Albert under the principle stated in Deschler's Procedure, 
     chapter 4, section 3.4, the rule strictly limits the number 
     of committee staff permitted on the floor at one time during 
     the consideration of measures reported from their committees. 
     This permission does not extend to Members' personal staff 
     except when a Member has an amendment actually pending during 
     the 5-minute rule. To this end, the Chair requests all 
     Members and committee staff to cooperate to assure that not 
     more than the proper number of staff are on the floor, and 
     then only during the actual consideration of measures 
     reported from their committees. The Chair will again extend 
     this admonition to all properly admitted majority and 
     minority staff by insisting that their presence on the floor, 
     including the areas behind the rail, be restricted to those 
     periods during which their supervisors have specifically 
     requested their presence. The Chair stated this policy in the 
     97th Congress, and an increasing number of Members have 
     insisted on strict enforcement of the rule. The Chair has 
     consulted with and has the concurrence of the Minority Leader 
     with respect to this policy and has directed [the Doorkeeper 
     and] the Sergeant at Arms to assure proper enforcement of the 
     rule.
             announcement by the speaker, january 21, 1986

       The Speaker. Rule XXXII strictly limits those persons to 
     whom the privileges of the floor during sessions of the House 
     are extended, and that rule prohibits the Chair from 
     entertaining request for suspension or waiver of that rule. 
     As reiterated by the Chair on January 25, 1983, and January 
     3, 1985, and as stated in chapter 4, section 3.4 of Deschler-
     Brown's Procedure in the House of Representatives, the rule 
     strictly limits the number of committee staff on the floor at 
     one time during the consideration of measures reported from 
     their committees. This permission does not extend to Members' 
     personal staff except when a Member's amendment is actually 
     pending during the 5-minute rule. It also does not extend to 
     personal staff of Members who are sponsors of pending bills 
     or who are engaging in special orders. The Chair requests the 
     cooperation of all Members and committee staff to assure that 
     only the proper number of staff are on the floor, and then 
     only during the consideration of measures reported from their 
     committees. The Chair is making this statement and 
     reiterating this policy because of concerns expressed by many 
     Members about the number of committee staff on the floor 
     during the last weeks of the first session. The Chair 
     requests each chairman, and each ranking minority member, to 
     submit to the [Doorkeeper] Sergeant at Arms a list of staff 
     who are to be allowed on the floor during the consideration 
     of a measure reported by their committee. Each staff person 
     should exchange his or her ID for a ``committee staff'' badge 
     which is to be worn while on the floor. The Chair has 
     consulted with the Minority Leader and will continue to 
     consult with him. The Chair has furthermore directed the 
     [Doorkeeper and] Sergeant at Arms to assure proper 
     enforcement of rule XXXII.

                2. Introduction of Bills and Resolutions

       The Speaker's statement in the 98th Congress on January 3, 
     1983, regarding the signing of bills and resolutions by their 
     first sponsors, will continue to apply in the 104th Congress.


              announcement by the speaker, january 3, 1983

       The Speaker. The Chair would like to make a statement 
     concerning the introduction and reference of bills and 
     resolutions. As Members are aware, they have the privilege 
     today of introducing bills. Heretofore on the opening day of 
     a new Congress, several hundred bills have been introduced. 
     The Chair will do his best to refer as many bills as 
     possible, but he will ask the indulgence of Members if he is 
     unable to refer all the bills that may be introduced. Those 
     bills which are not referred and do not appear in the Record 
     as of today will be included in the 
     [[Page H111]] next day's Record and printed with a date as of 
     today.
       The Chair has advised all officers and employees of the 
     House that are involved in the processing of bills that every 
     bill, resolution, memorial, petition or other material that 
     is placed in the hopper must bear the signature of a Member. 
     Where a bill or resolution is jointly sponsored, the 
     signature must be that of the Member first named thereon. The 
     bill clerk is instructed to return to the Member any bill 
     which appears in the hopper without an original signature. 
     This procedure was inaugurated in the 92d Congress. It has 
     worked well, and the Chair thinks that it is essential to 
     continue this practice to insure the integrity of the process 
     by which legislation is introduced in the House.
   special rule for bill sponsorship on opening day of 104th congress

       The Speaker. The House adopted a special rule earlier today 
     which allows the first 20 bills and the first two joint 
     resolutions introduced in the 104th Congress to have more 
     than one Member reflected as a ``first'' sponsor. Those bills 
     must bear not only the signature of the sponsor first listed 
     but the signatures of all ``first'' sponsors listed.

   3. Unanimous-Consent Requests for the Consideration of Bills and 
                              Resolutions

       The Speaker's policy with respect to recognition for 
     unanimous-consent requests for the consideration of 
     unreported bills and resolutions and for the consideration of 
     House bills with Senate amendments (other than requests to go 
     to conference), as initially announced in the 98th Congress 
     on January 25 and April 26, 1984, will apply during the 104th 
     Congress.


             announcement by the speaker, January 25, 1984

       The Speaker. As indicated in section [757] of the House 
     Rules and Manual, the Chair has established a policy of 
     conferring recognition upon Members to permit consideration 
     of bills and resolutions by unanimous consent only when 
     assured that the majority and minority floor leadership and 
     committee and subcommittee chairmen and ranking minority 
     members have no objection. Consistent with that policy, and 
     with the Chair's inherent power of recognition under clause 2 
     of the rule XIV, the Chair, and any occupant of the Chair 
     appointed as Speaker pro tempore pursuant to clause 7 of rule 
     I, will decline recognition for unanimous consent request for 
     consideration of bills and resolutions without assurances 
     that the request has been cleared by that leadership. This 
     denial of recognition by the Chair will not reflect 
     necessarily any personal opposition on the part of the Chair 
     to orderly consideration of the matter in question, but will 
     reflect the determination upon the part of the Chair that 
     orderly procedures will be followed; that is, procedures 
     involving consultation and agreement between floor and 
     committee leadership on both sides of the aisle.


              announcement by the speaker, april 26, 1984

       The Speaker. With respect to unanimous consent requests to 
     dispose of Senate amendments to House bills on the Speaker's 
     table, the Chair will entertain such a request only if made 
     by the chairman of the committee with jurisdiction, or by 
     another committee member authorized to make the request.

        4. Recognition for 1-Minute Speeches and Special Orders

       The Speaker's statement in the 98th Congress on January 25, 
     1984, with respect to the Speaker's policy for recognition 
     for 1-minute speeches will apply during the 104th Congress. 
     The Speaker today announces a residual policy for the 
     recognition of special order speeches absent an agreement 
     between the leaderships
      to the contrary.


 Announcement by the Speaker, August 8, 1984, relative to recognition 
                        for one-minute speeches

       The Speaker. After consultation with and concurrence by the 
     Minority Leader, the Chair announces that he will institute a 
     new policy of recognition for ``1-minute'' speeches and for 
     special order requests. The Chair will alternate recognition 
     for 1-minute speeches between majority and minority Members, 
     in the order in which they seek recognition in the well under 
     present practice from the Chair's right to the Chair's left, 
     with possible exceptions for Members of the leadership and 
     Members having business requests. The Chair, of course, 
     reserves the right to limit 1-minute speeches to a certain 
     period of time or to a special place in the program on any 
     given day, with notice to the leadership.


Announcement by the Speaker, January 4, 1995, relative to ``residual'' 
           policy for recognition for special order speeches

       The Speaker. Absent an agreement between the leadership 
     regarding recognition for requests to address the House for 
     ``special order speeches'' at the end of legislative 
     business, the Chair will decline recognition for permission 
     to address the House for any period extending more than one 
     week in advance of the request. In accordance with the 
     Speaker's policy as enunciated on August 8, 1984, the Chair 
     will first recognize Members who wish to address the House 
     for 5 minutes or less, alternating between majority and 
     minority Members in the order in which those permissions were 
     granted by the House. Thereafter, the Chair will recognize 
     Members who wish to address the House for longer than 5 
     minutes up to 1 hour, again alternating between majority and 
     minority Members in the order in which those permissions were 
     granted by the House. However, unlike the Speaker's policy of 
     August 8, 1984, the Chair will alternate daily between 
     parties recognition for the first special order longer than 
     five minutes regardless of the order in which permissions 
     were granted.


Announcement by the Speaker January 4, 1995, relative to special order 
                    speeches and morning hour debate

       The Speaker. Upon consultation with the Minority Leader, 
     the Chair announces that the format for recognition for 
     ``morning hour'' debate and restricted special order 
     speeches, which began on February 23, 1994, will continue 
     until February 16, 1995, as outlined below:
       On Tuesdays, following legislative business, the Chair may 
     recognize Members for special order speeches up to midnight, 
     and such speeches may not extend beyond midnight. On all 
     other days of the week, the Chair may recognize Members for 
     special order speeches up to four hours after the conclusion 
     of five minute special orders speeches. Such speeches may not 
     extend beyond the four-hour limit without the permission of 
     the Chair, which may be granted only with advance 
     consultation between the leaderships and notification to the 
     House. However, at no time shall the Chair recognize for any 
     special order speeches beyond midnight.
       The Chair will first recognize Members for five-minute 
     special order speeches, alternating initially and 
     subsequently between the parties regardless of the date the 
     order was granted by the House. The Chair will then recognize 
     longer
      special orders speeches. The four-hour limitation will be 
     divided between the majority and minority parties. Each 
     party is entitled to reserve its first hour for respective 
     leaderships or their designees. Recognition will alternate 
     initially and subsequently between the parties, regardless 
     of the date the order was granted by the House.
       The allocation of time within each party's two-hour period 
     (or shorter period if prorated to end by midnight) is to be 
     determined by a list submitted to the Chair by the respective 
     leaderships. Members may not sign up for any special order 
     speeches earlier than one week prior to the special order, 
     and additional guidelines may be established for such sign-
     ups by the respective leaderships.
       Pursuant to clause 9(b)(1) of rule I, the television 
     cameras will not pan the chamber, but a ``crawl'' indicating 
     Morning Hour or that the House has completed its legislative 
     business and is proceeding with special order speeches will 
     appear on the screen. Other television camera adaptations 
     during this period may be announced by the Chair.
       The continuation of this format for recognition by the 
     Speaker is without prejudice to the Speaker's ultimate power 
     of recognition under clause 2 of rule XIV should 
     circumstances so warrant.

                          5. Decorum in Debate

       The Speaker's statement in the 102d Congress on January 3, 
     1991, with respect to decorum in debate, will apply during 
     the 104th Congress as supplemented by an announcement made by 
     the Speaker earlier today.


              announcement by the speaker, january 3, 1991

       The Speaker. It is essential that the dignity of the 
     proceedings of the House be preserved, not only to assure 
     that the House conducts its business in an orderly fashion 
     but to permit Members to properly comprehend and participate 
     in the business of the House. To this end, and in order to 
     permit the Chair to understand and to correctly but the 
     question on the numerous requests that are made by Members, 
     the Chair requests that Members and others who have the 
     privileges of the floor desist from audible conversation in 
     the Chamber while the business of the House is being 
     conducted. The Chair would encourage all Members to review 
     rule XIV to gain a better understanding of the proper rules 
     of decorum expected of them, and especially: First, to avoid 
     ``personalities'' in debate with respect to references to 
     other Members, the Senate, and the President; second, to 
     address the Chair while standing and only when and not beyond 
     the time recognized, and not to address the television or 
     other imagined audience; third, to refrain from passing 
     between the Chair and the Member speaking, or directly in 
     front of a Member speaking from the well; fourth, to refrain 
     from smoking in the Chamber; and generally to display the 
     same degree of respect to the Chair and other Members that 
     every Member is due.
              Announcement by the Speaker, January 4, 1995

       The Speaker. The Chair would like all Members to be on 
     notice that the Chair intends to strictly enforce time 
     limitations on debate. Before gavelling Members down 
     precisely when their time has expired, the Chair will lightly 
     tap the gavel as a warning that a Member has 10 seconds 
     remaining. Furthermore, the Chair may immediately interrupt 
     Members in debate who transgress rule XIV by failing to avoid 
     ``personalities'' in debate with respect to references to the 
     Senate, the President, and other Members, rather than wait 
     for Members to complete their remarks.
       Finally, it is not in order to speak disrespectfully of the 
     Speaker; and under the precedents the sanctions for such 
     violations transcend the ordinary requirements for timeliness 
     of challenges. This separate treatment is recorded in volume 
     2 of Hinds' Precedents, at section 1248.
         [[Page H112]] 6. Conduct of Votes by Electronic Device


              Announcement by the Speaker January 4, 1995

       The Chair wishes to enunciate a clear policy with respect 
     to the conduct of electronic votes.
       As Members are aware, clause 5 of rule XV provides that 
     Members shall have not less than 15 minutes in which to 
     answer an ordinary rollcall vote or quorum call. The rule 
     obviously establishes 15 minutes as a minimum. Still, with 
     the cooperation of the Members, a vote can easily be 
     completed in that time. The events of October 30, 1991, stand 
     out as proof of this point. On that occasion, the House was 
     considering a bill in the Committee of the Whole under a 
     special rule that placed an overall time limit on the 
     amendment process, including the time consumed by rollcalls. 
     The Chair announced, and then strictly enforced, a policy of 
     closing electronic votes as soon as possible after the 
     guaranteed period of 15 minutes. Members appreciated and 
     cooperated with the Chair's enforcement of the policy on that 
     occasion.
       The Chair desires that the example of October 30, 1991, be 
     made the regular practice of the House. To that end, the 
     Chair enlists the assistance of all Members in avoiding the 
     unnecessary loss of time in conducting the business of the 
     House. The Chair encourages all Members to depart for the 
     Chamber promptly upon the appropriate bell and light signal. 
     As in recent Congresses, the cloakrooms should not forward to 
     the Chair requests to hold a vote by electronic device, but 
     should simply apprise inquiring Members of the time remaining 
     on the voting clock.
       Although no occupant of the Chair would prevent a Member 
     who is in the well of the chamber before the announcement of 
     the result from casting his or her vote, each occupant of the 
     Chair will have the full support of the Speaker in striving 
     to close each electronic vote at the earliest opportunity. 
     Members should not rely on signals relayed from outside the 
     chamber to assume that votes will be held open until they 
     arrive in the chamber.

 7. Requests for Leave of Committees to Sit During the Five-Minute Rule

       The Speaker's statement in the 98th Congress on March 3, 
     1983, with respect to requests for leave of committees to sit 
     during the five-minute rule, will again apply during the 
     104th Congress, except that the Chair, under clause 2 of rule 
     XI, may entertain a motion of the Majority Leader granting 
     such leave to one or more committees.


               Announcement by the Speaker, March 3, 1983

       The Speaker. The Chair announces that he will recognize 
     Members to make requests for committees to sit during the 5-
     minute rule only at certain times during the legislative day. 
     While the precedents indicate that such requests when pending 
     are not votes requiring the presence of a quorum, the Chair 
     wishes to avoid the need for a call of the House pending such 
     requests but at the same time to assure predictability as to 
     when he will accord recognition. Therefore, the Speaker 
     intends to set up the following guidelines:
       First as has been established by precedent, permission to 
     sit shall require unanimous consent if the permission 
     pertains to a day for which the program has not been 
     announced. Thus, prior to the announcement of the legislative 
     program for the following week, only one objection would be 
     required to prevent a committee from sitting. Following the 
     announcement by the Majority Leader, or his designee, of the 
     program for the next week, the Chair would entertain requests 
     for committees to sit during the following week and 10 
     objections would then be required. The Chair wants it to be 
     clearly understood that the first available opportunity in 
     the House following the announcement of the program is an 
     appropriate time for considering requests pertaining to the 
     following week if the announcement comes before the 
     completion of all legislative business.
       Second, the Chair will not entertain requests on days when 
     all votes on legislative matters have been postponed to a 
     later date; however, the Chair will accept requests for 
     committee hearings to be held later in the week if the 
     request has the concurrence of the ranking minority member of 
     the committee or subcommittee.
       Third, on days when legislative business is to be 
     conducted, and when rollcall votes are in order on 
     legislation, the Chair will recognize during the 1-minute 
     period only when he is assured that the ranking minority 
     member of the committee or subcommittee involved supports the 
     requests for the hearings or meetings.
       Requests that have been objected to by 10 or more Members 
     pursuant to clause 2(i) of Rule XI may not be renewed on the 
     same day unless the Chair is assured that the objections have 
     been withdrawn. The Chair will in no instance entertain 
     requests after the legislative business of the day has been 
     concluded; that is, after leaves of absence have been laid 
     down or unanimous consent requests from the majority and 
     minority tables have been entertained at the end of the day.
     

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