[House Practice: A Guide to the Rules, Precedents and Procedures of the House]
[Chapter 10. Chamber, Rooms, and Galleries]
[From the U.S. Government Publishing Office, www.gpo.gov]
CHAPTER 10
CHAMBER, ROOMS, AND GALLERIES
HOUSE PRACTICE
Sec. 1. In General; Use of the Hall
Sec. 2. Admission to the Floor
Sec. 3. Electronic Devices; Signals, Bells, and Clocks
Sec. 4. Galleries and Corridors
Sec. 5. Photographs; Radio and Television Coverage
Research References
5 Hinds Sec. Sec. 7270-7311
8 Cannon Sec. Sec. 3632, 3636-3643
Deschler Ch 4; Deschler-Brown Ch 29 Sec. 85
Manual Sec. Sec. 677-684
Sec. 1 . In General; Use of the Hall
The Hall of the House and unappropriated rooms in the House (rooms
not specifically assigned by action of the House) are under the
general control of the Speaker. Clause 3 of rule I; Manual Sec. 623.
Control of the appropriated rooms in the House wing is exercised by
the House itself. 5 Hinds Sec. Sec. 7273-7279. Resolutions assigning a
room to a committee have been considered as privileged. 5 Hinds
Sec. 7273.
Under clause 1 of rule IV, the Hall may be used only for (1) the
legislative business of the House; (2) caucus meetings of its Members,
including joint party caucuses; (3) ceremonies in which the House
votes to participate; and (4) classified briefings of Members, if
authorized by the Speaker, during recesses declared under clause 12 of
rule I. Manual Sec. Sec. 623, 677. In rare instances the House has
permitted the Hall to be used for ceremonial or special occasions. 8
Cannon Sec. 3632; Deschler Ch 4 Sec. Sec. 3.1, 3.4. However, a House
and Senate ceremony of religious reconciliation to be conducted in the
Hall of the House during a recess requires adoption of a concurrent
resolution by both Houses. See, e.g., 107-1, H. Con. Res. 184, Oct.
23, 2001, pp 20388-90 (never adopted by the Senate). Beginning in the
111th Congress, the Speaker has announced a policy that when the House
stands adjourned, its chamber remains on static display and shall not
be used for any proceedings that might be taken to carry the
imprimatur of the House. Manual Sec. 677.
Disorderly or disruptive acts in the Capitol are unlawful, and
unauthorized demonstrations are prohibited by law. 40 USC
Sec. 5104(e)(2)(D). Mass presence of Members in the well while not
under recognition (114-2, June 22, 2016, p__), or a gathering of
Members displaying electronic and non-electronic exhibits (113-2, Mar.
13, 2014, p__), constitutes a breach of decorum. The unauthorized
presence of persons on the floor of either House or in the gallery of
either House is prohibited. 40 USC Sec. 5104(e)(2)(B). Disorder in the
House, see Consideration and Debate.
Sec. 2 . Admission to the Floor
Generally
Clause 2 of rule IV enumerates those persons entitled to be
admitted to the floor or rooms leading thereto. Manual Sec. 678. Among
those who may be admitted to the Hall are Members and Members-elect of
Congress, the President and Vice President, Judges of the Supreme
Court, governors of states, heads of departments, foreign ministers,
contestants in election cases during the pendency of their cases on
the floor, one attorney for a Member-respondent during consideration
of a disciplinary resolution reported from the Committee on Ethics,
and other named officials. Manual Sec. 678. The term ``heads of
departments'' has been construed to mean members of the President's
Cabinet, and the term ``foreign ministers'' has been construed to mean
the representatives of foreign governments duly accredited to the
United States, and not necessarily those with the title of
``minister'' in their own parliaments. 5 Hinds Sec. 7283. The term
``contestants in election cases'' has been construed to include
challengers in an election contest, even though the challenger was not
a candidate in the election in which the sitting Member was reelected.
Deschler Ch 4 Sec. 4.5. Under clauses 2 and 3 of rule VI, the Speaker
is authorized to admit to the floor of the House certain
representatives of press associations and media outlets. Manual
Sec. Sec. 693, 694.
It is not in order to refer to persons temporarily on the floor of
the House as guests of the House, such as Members' children. Manual
Sec. 678. Although Senators have floor privileges, they are not
entitled to address the House. Deschler Ch 4 Sec. 4.8.
The rule is strictly enforced during regular meetings. However,
the rule is less strictly enforced on ceremonial occasions (5 Hinds
Sec. 7290) or when the House is in recess during a joint meeting with
the Senate (Deschler Ch 4 Sec. 4). The House may, by resolution,
specify the individuals to be admitted to the floor during a
ceremonial occasion. 114-1, July 28, 2015, p__. The rule on floor
privileges is not applicable to joint sessions of the two Houses. 5
Hinds Sec. 7292. The Speaker sometimes announces guidelines for use of
the Chamber during a recess. During a regular meeting, a point of
order will lie to object to the presence of any unauthorized persons.
92-2, June 21, 1972, p 21704. Under clause 2(b) of rule IV, motions or
unanimous-consent requests to suspend the rule may not be entertained
by the Speaker or by the chair of the Committee of the Whole. 5 Hinds
Sec. 7285. However, the House may, by simple resolution, authorize the
presence on the floor of individuals otherwise precluded by the rule.
111-2, H. Res. 1555, July 26, 2010, p 13938.
The Speaker has the authority to exclude an individual who abuses
the privileges of the floor. 5 Hinds Sec. 7288. An alleged abuse of
the privilege of the floor may be made the subject of an inquiry by a
special committee. 5 Hinds Sec. 7287.
Former Members
A former Member must observe the rules of proper decorum while on
the floor, and the Chair may direct the Sergeant-at-Arms to assist the
Chair in maintaining such decorum. Manual Sec. 622. The question of
banning a former Member engaged in indecorous behavior on the floor
gives rise to a question of the privileges of the House. Manual
Sec. 680. A former Member may not manifest approval or disapproval of
the proceedings. 8 Cannon Sec. 3635. For more information on floor
privileges of former Members, see Manual Sec. 680.
Although former Members, officers, and certain former employees
have access to the floor under clause 2 of rule IV, such individuals
are not entitled to the privileges of the floor, or rooms leading
thereto, if they (1) are a registered lobbyist or agent of a foreign
principal; (2) have a direct personal or pecuniary interest in
legislation under consideration in the House or reported by any
committee; or (3) represent any party or organization for the purpose
of influencing the disposition of legislation pending before the House
or reported by a committee or under consideration in a committee.
Manual Sec. 680. For regulations issued by the Speaker under this
rule, see Manual Sec. 680.
Staff; Committee Clerks
Clause 2(a)(7) of rule IV permits on the floor staff of a
committee when business from their committee is under consideration
and no more than one person from the staff of a Member when that
Member has an amendment under consideration. This rule has been
interpreted by the Speaker to allow the presence on the floor of four
professional staff members and one clerk from a committee during
consideration of that committee's business and to require that such
individuals remain unobtrusively by the committee tables. Manual
Sec. 678. Clause 2(a)(7) of rule IV also permits on the floor staff of
the respective party leaderships when so assigned with the approval of
the Speaker. The privileges of the floor do not extend to departmental
employees assisting committees in the preparation of bills. 6 Cannon
Sec. 579. Where several committees are involved with a pending
measure, the rule permits authorized majority and minority staff (up
to five persons) from each committee. 97-1, June 26, 1981, p 14574.
Clerks other than those employed by a committee involved in the bill
under consideration are not entitled to the floor. Deschler Ch 4
Sec. 4. The Speaker has announced an intention to strictly enforce the
rule to prevent a proliferation of staff on the floor and has required
committee staff to display staff badges when on the floor. Manual
Sec. 678. Under clause 5 of rule IV, and regulations promulgated by
the Speaker thereunder, staff on the floor are not permitted to pass
out literature or otherwise attempt to influence Members in their
votes or to applaud during debate. Manual Sec. 681.
Secret Sessions
Before a secret session of the House commences, the Speaker may
direct that the Chamber be cleared of all persons except Members and
those officers and employees, specified by the Speaker, whose
attendance on the floor is essential to the functioning of the
session. Clause 10 of rule XVII; Manual Sec. 969; Deschler-Brown Ch 29
Sec. 85. A point of order will not lie against the presence in the
Chamber of those persons whose attendance on the floor is permitted by
the Speaker's directive. Deschler-Brown Ch 29 Sec. 85.15; see
Consideration and Debate. Secret classified briefings of Members may
be permitted during recesses of the House declared by the Speaker
under clause 12 of rule I. Under clause 13 of rule XXIII, a Member,
officer, or employee must execute an oath of secrecy before having
access to classified material. Manual Sec. 1095.
Sec. 3 . Electronic Devices; Signals, Bells, and Clocks
Various electronic devices and computer services are used by the
House to expedite quorum calls and votes and for other purposes.
Manual Sec. Sec. 1012-1016. For example, a legislative bell and light
system alerts Members to quorum calls, the taking of certain votes,
and other occurrences on the floor. Manual Sec. Sec. 1014, 1016.
Changes in the system are announced by the Speaker from time to time.
The failure of the signal bells to announce a vote does not warrant
repetition of the record vote, nor does such a failure permit a Member
to be recorded following the conclusion of the call. Manual Sec. 1016;
8 Cannon Sec. Sec. 3153, 3155, 3157; see also Voting.
The use of a mobile electronic device on the floor of the House
that impairs decorum (such as displaying an image on such a device
while not under recognition, 113-2, Mar. 13, 2014, p__) is prohibited
under clause 5 of rule XVII, and the Chair has admonished Members to
disable wireless telephones on entering the Chamber. The Chair has
also announced that the use of wireless telephones is not permitted in
the gallery. Manual Sec. 962.
Microphones have been placed on the floor of the House for the use
of Members. Although under clause 1 of rule XVII, a Member may address
the House from any place on the floor, a Member making an appropriate
request should use one of the floor microphones so that all Members
may hear the request. 94-1, Oct. 28, 1975, p 34027. A Member may speak
at any microphone on the floor. Manual Sec. 364. Clause 2 of rule I
directs the Speaker to preserve order and decorum in the House, and
authorizes the Speaker to order the microphones turned off if they are
being utilized by a disorderly Member who has not been properly
recognized. Deschler-Brown Ch 29 Sec. 11.19.
Sec. 4 . Galleries and Corridors
Under clause 3 of rule I, control over the corridors leading to
the House Chamber is vested in the Speaker. Manual Sec. Sec. 622, 623.
The Speaker may order the corridors cleared during quorum calls and
the taking of votes to ensure unimpeded access to the Chamber. Manual
Sec. 623. Under clause 2 of rule I, the Speaker preserves order and
decorum in the galleries, and in the event of a disturbance, may order
the galleries cleared. Manual Sec. 622. However, the Speaker rarely
exercises this authority, and the galleries have not been so cleared
since the 92d Congress. 92-2, Jan. 18, 1972, p 9; 92-2, May 10, 1972,
p 16576. The chair of the Committee of the Whole may exercise similar
power in preserving order in the galleries. Manual Sec. 970.
Guests in the House gallery must maintain order and refrain from
manifestations of approval or disapproval of proceedings on the floor,
and admonitions may be expressed either by the Speaker or by the chair
of the Committee of the Whole. Deschler Ch 4 Sec. 5.6. Under clause 7
of rule XVII, it also is out of order to refer to visitors in the
galleries, even with permission to proceed out of order; and the
Speaker, sua sponte, may declare such remarks to be out of order.
Deschler Ch 4 Sec. Sec. 5.3, 5.4.
Sec. 5 . Photographs; Radio and Television Coverage
Photographs
Under the practice of the House, permission must be obtained
before photographs may be taken inside the House Chamber. Rules
regarding the taking of such pictures may be enforced by the Speaker.
Deschler Ch 4 Sec. 3.5 (note); 114-2, June 23, 2016, p__. Official
photographs of the House while in session may be permitted by
resolution. See, e.g., 107-2, H. Res. 378, June 5, 2002, p 9285; 109-
1, Oct. 7, 2005, p 22648; 111-1, H. Res. 658, July 17, 2009, p 18223.
Media Coverage of Floor Proceedings
Prior to the 95th Congress, the rules and precedents of the House
did not permit public radio and television broadcasts of House
proceedings. In 1977, the House adopted a privileged resolution
reported from the Committee on Rules to provide a system of closed-
circuit viewing of House proceedings and for the orderly development
of a broadcasting system. Under rule V, the Speaker directs the audio
and visual broadcasting and recording of the proceedings of the House,
including periods of voting. Under this rule, broadcasts are made over
closed-circuit television in House offices and have been made
available to the news media and to cable television systems.
Broadcasts made available under the rule may not be used for political
or commercial purposes. Manual Sec. 684. Since the 110th Congress, the
Clerk has provided online streaming coverage of House floor
proceedings (``HouseLive''), which is accessible to Members and the
public on the Clerk's website. In the 115th Congress, the Sergeant-at-
Arms was authorized to assess fines on Members for the use of
electronic devices for still photography or audio-visual broadcasting
in contravention of clause 5 of rule XVII or any of the Speaker's
announced policies regarding the use of electronic devices in the
House Chamber. 115-1, Jan. 3, 2017, p__.
In 1984, a question arose as to the authority of the Speaker to
require wide-angle television coverage of the House Chamber during
special-order speeches. In that instance, the Speaker's directive that
television cameras covering special-order speeches of the House at the
completion of legislative business include periodic wide-angle
coverage of the entire House Chamber was held to be consistent with
the authority conferred upon the Speaker under rule V. Manual
Sec. 684. Beginning in the 103d Congress, the Speaker has followed a
policy under which television cameras would not ``pan'' the Chamber
during morning-hour or special-order speeches. However, the Speaker
directed that a caption run at the bottom of the screen indicating the
conduct of morning-hour debate or to show that legislative business
has been completed for the day. Manual Sec. 684.
Although clause 2 of rule V requires complete and unedited
broadcast coverage of the proceedings of the House, it does not
require in-House microphone amplification of disorderly conduct by a
Member no longer under recognition. Deschler-Brown Ch 29 Sec. 11.19.