    [Constitution, Jefferson's Manual, and the Rules of the House of Representatives, 104th Congress]
    [104th Congress]
    [House Document 103-342]
    [Jeffersons Manual of ParliamentaryPractice]
    [Pages 269-281]
    [From the U.S. Government Publishing Office, www.gpo.gov]

    [[Page 269]]

                            SEC. XLVI.--CONFERENCES.

    Sec. 530. Parliamentary law as to asking
    conferences.

      It is on the  occasion of amendments between the Houses that
    conferences are usually asked; but they may be asked in all cases of
    difference of opinion between the two Houses on matters depending
    between them. The request of a conference, however, must always be by
    the House which is possessed of the papers. 3 Hats., 31; 1 Grey, 425.

      The House of Representatives follows the principles set forth in this
    paragraph of the parliamentary law. A conference may be asked on only a
    portion of the amendments in disagreement, leaving the differences as to
    the remainder to be settled by the action of the two Houses themselves
    (V, 6401). In very rare instances conferences have been asked by one
    House after the other has absolutely rejected a main proposition (IV,
    3442; V, 6258). A difference over an amendment to a proposed
    constitutional amendment may be committed to a conference (V, 7037).

    Sec. 531. Conferences over matters other
    than differences as to amendments.

      While conferences  between the two Houses of Congress
    are usually held over differences as to amendments to bills,
    occasionally differences arise as to the respective prerogatives of the
    Houses (II, 1485-1495) or as to matters of procedures (V, 6401), as in
    impeachment proceedings (III, 2304), which are referred to conference.
    In early and exceptional instances conferences have been asked as to
    legislative matters when no propositions relating thereto were pending
    (V, 6255-6257).

    Sec. 532. Conferences by means of select
    committees.

      In very  rare cases, also, the Houses interchange views and come to
    conclusions by means of select committees appointed on the part of each
    House (I, 3). Thus, in 1821, a joint committee was chosen to consider
    and report to the two Houses whether or not it was expedient to provide
    for the admission of Missouri into the Union (IV, 4471), and in 1877
    similar committees were appointed to devise a method for counting the
    electoral vote (III, 1953).

    [[Page 270]]
    that an omission to do so has even raised a question (V, 6273). Yet it
    can not be said that the practice requires a request for a conference to
    be made by the House disagreeing to the amendments of the other (V,
    6274-6277). One House having asked a conference at one session, the
    other House may agree to the conference at the next session of the same
    Congress (V, 6286).

    Sec. 533. Requests for conferences.

      The  parliamentary law
    provides that the request for a conference must always be by the House
    which is possessed of the papers (V, 8254). It was formerly the more
    regular practice for the House disagreeing to amendments of the other to
    leave the asking of a conference to that other House if it should decide
    to insist (V, 6278-6285, 6324); but it is so usual in the later practice
    for the House disagreeing to an amendment of the other to ask a
    conference

    Sec. 534. Requests for conferences declined or
    neglected.

      In rare  instances one House has declined the request of the other
    for a conference (V, 6313-6315; Mar. 20, 1951, p. 2683), sometimes
    accompanying it by adherence (V, 6313, 6315). In one instance, where the
    Senate declined a conference, it transmitted, by message, its reasons
    for so doing (V, 6313). Sometimes, also, one House disregards the
    request of the other for a conference and recedes from its disagreement,
    thereby rendering a conference unnecessary (V, 6316-6318). And in one
    case, where one House has asked a conference to which the other has
    assented, the asking House receded before the conference took place (V,
    6319). Also, a bill returned to the House with a request for a
    conference has been postponed indefinitely (V, 6199).

    Sec. 535. Motions to request conferences.

      After the  stage of
    disagreement has been reached, a motion to ask a conference is
    considered as distinct from motions to agree or disagree to amendments
    of the other House (V, 6268) and the motions to agree, recede, or insist
    are considered as preferential (V, 6269, 6270). Where a motion to
    request a conference at this stage has been rejected, its repetition at
    the same stage of the proceedings, no other motion to dispose of the
    matter in disagreement having been considered, has not been permitted
    (V, 6325). Where a conference results in disagreement, a motion to
    request a new conference is privileged (V, 6586). Sometimes
    disagreements are voted on by the House and conferences asked through
    the medium of special orders (IV, 3242-3249).

      Before the stage of disagreement, any motion with respect to
    amendments between the two Houses is without privilege, except for
    motions with respect to the limited number of amendments that qualify
    under clause 2 of rule XXIV or motions under clause 1 of rule XX, to
    disagree to Senate amendments (or insist on House amendments) and to
    request or agree to an initial conference if the motion is authorized by
    the Committee which reported the bill and if the Speaker, in his
    discretion, recognizes for that purpose. A motion under the latter
    clause may be repeated, if again authorized by the committee concerned,
    and if the Speaker again agrees to recognize for that purpose, even
    though the House has once rejected a motion to send the same matter to
    conference (Speaker Albert, Oct. 3, 1972, pp. 33502-03).

    [[Page 271]]
    which acts by a majority (V, 6334). The Speaker appoints the managers
    on the part of the House (clause 6(f) of rule X) and has discretion as
    to the number to serve on a given bill (V, 6336; VIII, 2193) but must
    appoint (1) a majority of Members who generally support the House
    position, as determined by the Speaker; (2) Members who are primarily
    responsible for the legislation; and (3) to the fullest extent feasible
    the principal proponents of the major provisions of the bill as it
    passed the House (clause 6(f) of rule X). While the practice used to be
    to appoint three managers from each house (V, 6336), in the absence of
    joint rules each House may appoint whatever number it sees fit (V, 6328-
    6330). The two Houses have frequently appointed a disparate number of
    managers (V, 6331-6333; VIII, 3221); and where the Senate appointed nine
    and the House but three, a motion to instruct the Speaker to appoint a
    greater number of managers on the part of the House was held out of
    order (VII, 2193). In appointing managers the Speaker usually consults
    the Member in charge of the bill (V, 6336); and where an amendment in
    disagreement falls within the jurisdiction of two committees of the
    House, the Speaker has named Members from both committees and specified
    the respective areas on which they were to confer (Speaker Albert, Nov.
    30, 1971, p. 43422). In appointing conferees on the general
    appropriation bill for fiscal year 1951, Speaker Rayburn appointed a set
    of managers for each chapter of the bill and four Members to sit on all
    chapters (Aug. 7, 1950, p. 11894). While the appointment of conferees,
    both as to their number and composition, is within the discretion of the
    Chair (Speaker Martin, July 8, 1947, p. 8469; Speaker Garner, June 24,
    1932, p. 13876), and while a point of order will not lie against his
    exercise of this discretion (VIII, 2193, 3221), the Speaker normally
    takes into consideration the attitude of the majority and minority of
    the House on the disagreements in issue (V, 6336-6338; VIII, 3223), the
    varying views of the members of the House (V, 6339, 6340), and does not
    necessarily confine his appointments to members of the committee in
    charge of the bill (V, 6370). In one case, where the prerogatives of the
    House were involved, all of the managers were appointed to represent the
    majority opinion (V, 6338). See also Sec. 701e, infra.

    Sec. 536. Managers of conferences.

      While usual,  it is not
    essential that one House, in asking a conference, transmit the names of
    its managers at the same time (V, 6405). The managers, properly so
    called (V, 6335), constitute practically two distinct committees, each
    of

    Sec. 537. Reappointment of, at second and
    subsequent conferences.

      Where there  were several conferences on a bill, it was the
    early practice to change the managers at each conference (V, 6288-6291,
    6324), and so fixed was this practice that their reappointment had a
    special significance, indicating an unyielding temper (V, 6352-6368);
    but in the later practice it is the rule to reappoint managers (V, 6341-
    6344) unless a change be necessary to enable the sentiment of the House
    to be represented (V, 6369).

    [[Page 272]]
    6372; VIII, 3228). Where one House makes a change in its managers, it
    informs the other House, by message (V, 6377, 6378). According to the
    later practice the powers of managers who have not reported do not
    expire by reason of the termination of a session of Congress, unless it
    be the last session (V, 6260-6262).

    Sec. 538. Vacancies, etc., in managers of
    conferences.

      Managers of  a conference are excused from service either by authority
    of the House (V, 6373-6376; VIII, 3224, 3227) or, since the 103d
    Congress, by removal by the Speaker (clause 6(f) of rule X). The absence
    of a manager may cause a vacancy, which the Speaker fills by appointment
    (V,

    Sec. 539. Parliamentary law as to free and simple
    conferences.

      Conferences  may be either simple or free. At a conference simply,
    written reasons are prepared by the House asking it, and they are read
    and delivered, without debate, to the managers of the other House at the
    conference, but are not then to be answered. 4 Grey, 144. The other
    House then, if satisfied, vote the reasons satisfactory, or say nothing;
    if not satisfied they resolve then not satisfactory and ask a conference
    on the subject of the last conference, where they read and deliver, in
    like manner, written answer to those reasons. 3 Grey, 183. They are
    meant chiefly to record the justification of each House to the nation at
    large and to posterity and in proof that the miscarriage of a necessary
    measure is not imputable to them. 3 Grey, 255. At free conferences the
    managers discuss, viva voce and freely, and interchange propositions for
    such modifications as may be made in a parliamentary way, and may bring
    the sense of the two Houses together. * * *

    [[Page 273]]
    the body appointing it'' (V, 6403). And where the House had asked a
    free conference it was held not in order to instruct the managers (V,
    6384). But it is very rare for the House in asking a conference to
    specify whether it shall be free or simple.

    Sec. 540. Free and simple conferences in modern
    practice.

      This provision  of the parliamentary law bears little relation to the modern
    practice of the two Houses of Congress, and that practice has evolved a
    new definition: ``A free conference is that which leaves the committee
    of conference entirely free to pass upon any subject where the two
    branches have disagreed in their votes, not, however, including any
    action upon any subject where there has been a concurrent vote of both
    branches. A simple conference--perhaps it should more properly be termed
    a strict or a specific conference, though the parliamentary term is
    `simple'--is that which confines the committee of conference to the
    specific instructions of

    [[Page 274]]

    Sec. 541. Instruction of managers of a
    conference.

      In their practices  as to the instruction of managers of a conference, the
    House of Representatives and the Senate do not agree. Only in rare
    instances has the Senate instructed (V, 6398), and these instances are
    at variance with its declaration, made after full consideration, that
    managers may not be instructed (V, 6397). And where the House has
    instructed its managers, the Senate sometimes has declined to
    participate and asked a free conference (V, 6402-6404). In the later
    practice the House does not inform the Senate when it instructs its
    managers (V, 6399), the Senate having objected to the transmittal of
    instructions by message (V, 6400, 6401). In one instance where the
    Senate learned indirectly that the House had instructed its managers, it
    declared that the conference should be full and free, and instructed its
    own managers to withdraw if they should find the freedom of the
    conference impaired (V, 6406). But the House of Representatives holds to
    the opinion that the House may instruct its managers (V, 6379-6382),
    although the propriety of doing so at a first conference has been
    questioned (V, 6388, footnote). And in rare instances where a free
    conference is asked instruction is not in order (V, 6384). At a new
    conference the instructions of a former conference are not in force (V,
    6383; VIII, 3240). And instructions may not direct the managers to do
    that which they might not otherwise do (V, 6386, 6387; VIII, 3235,
    3244), as to effect a change in part of a bill not in disagreement (V,
    6391-6394) or change the text to which both Houses have agreed (V,
    6388). Although managers may disregard instructions, their report may
    not for that reason be ruled out of order (V, 6395; VIII, 3246; June 8,
    1972, p. 20282), and when a conference report is recommitted with
    instructions the managers are not confined to the instructions alone
    (VIII, 3247). The motion to instruct managers should be offered after
    the vote to ask for or agree to a conference and before the managers are
    appointed (V, 6379-6382; VIII, 3233, 3240, 3256). The motion to instruct
    may be amended unless the previous question is ordered (V, 6525; VIII,
    3231, 3240); thus a motion to instruct House conferees to agree to a
    numbered Senate amendment with an amendment may be amended, upon
    rejection of the previous question, to instruct the conferees to agree
    to the Senate amendment (June 9, 1982, pp. 13027, 13028, 13039, 13049).
    The motion to instruct may be laid on the table without carrying the
    bill to the table (VIII, 2658). The motion is debatable (see clause 1(b)
    of rule XXVIII) unless the previous question is ordered (VIII, 2675,
    3240). After a motion to ask or agree to a conference is agreed to, only
    one valid motion to instruct is in order (VIII, 3236; Speaker Wright,
    Feb. 17, 1988, p. 1583); but this restriction does not apply to a motion
    to instruct under clause 1(c) of rule XXVIII (Aug. 22, 1935, pp. 14162-
    64).

      A member of the minority is first entitled to recognition for a motion
    to instruct conferees (Speaker Bankhead, Oct. 31, 1939, pp. 1103-05;
    Speaker Albert, Oct. 19, 1971, pp. 36832-35), and where two minority
    members of the reporting committee seek recognition to offer a motion to
    instruct conferees prior to their appointment, the Chair will recognize
    the senior minority member of the committee (Oct. 10, 1986, p. 30181;
    Speaker Wright, Feb. 17, 1988, p. 1583). The ruling out of a motion to
    instruct conferees does not preclude the offering of a proper motion to
    instruct (VIII, 3235), but one motion to instruct having been considered
    and disposed of, further motions to instruct are not in order (VIII,
    3236). Such additional instructions should have been offered as
    amendments to the original motion to instruct.

    Sec. 542. Parliamentary law as to reports of
    managers of a conference.

      * * * And each  party report in writing to their respective
    Houses the substance of what is said on both sides, and it is entered in
    their journals. 9 Grey, 220; 3 Hats; 280. This report can not be amended
    or altered, as that of a committee may be. Journal Senate, May 24, 1796.

    [[Page 275]]
    on as part of the report (V, 6465-6467; see also clause 3 of rule
    XXVIII). A quorum among the managers on the part of the House at a
    committee of conference is established by their signatures on the
    conference report and joint explanatory statement (Oct. 4, 1994, p. ----
    ).

    Sec. 543. Forms of conference reports.

      In the two  Houses of
    Congress conference reports were originally merely suggestions for
    action and were neither identical in the two Houses nor acted on as a
    whole (V, 6468-6471). In the House of Representatives, rule XXVIII
    provides that conference reports may be received at any time, except
    when the Journal is being read, while the roll is being called or the
    House is dividing. They are privileged on or after the third calendar
    day (excluding Saturdays, Sundays, or legal holidays) after they have
    been filed and printed in the Record, together with the accompanying
    statement (clause 2 of rule XXVIII). The early reports were not signed
    by the managers (IV, 3905); but in the later practice the signatures of
    the majority of the managers of each House is required (V, 6497-6502;
    VIII, 3295). Sometimes a manager indorses the report with a conditional
    approval or dissent (V, 6489-6496, 6538), but supplemental reports or
    minority views may not be filed in connection with conference reports
    (VIII, 3302). The name of an absent manager may not be affixed, but the
    two Houses by concurrent action may authorize him to sign the report
    after it has been acted on (V, 6488). The minority portion of the
    managers of a conference have no authority to make either a written or
    verbal report concerning the conference (V, 6406). In the later practice
    reports of managers are identical, and made in duplicate for the two
    Houses, the House managers signing first the report for their House and
    the Senate managers signing the other report first (V, 6323, 6426, 6499,
    6500, 6504). Under certain circumstances managers may report an entirely
    new bill on a subject in disagreement, but this bill is acted

    Sec. 544. Partial conference reports.

      Managers may  report an
    agreement as to a portion of the numbered amendments in disagreement,
    leaving the remainder to be disposed of by subsequent action (V, 6460-
    6464).

    Sec. 545. Reports of inability to agree.

      Where managers  of a
    conference are unable to agree, or where a report is disagreed to in
    either House, another conference is usually asked (V, 6288-6291). When
    managers report that they have been unable to agree, the report is not
    acted on by the House of Representatives (V, 6562; VIII, 3329, Aug. 23,
    1957, p. 15816). While under the earlier practice, when conferees
    reported in complete disagreement, the amendments in disagreement were
    considered available for immediate disposition (VIII, 3299, 3332), the
    current practice (as a result of the amendment to clause 2(b) of rule
    XXVIII that became effective in the 93d Congress) is to require the
    matter to lay over until the third calendar day (excluding Saturdays,
    Sundays, or legal holidays) after the report in disagreement is filed
    and printed in the Record. In the earlier practice reports of inability
    to agree were made verbally or by unsigned written reports (V, 6563-
    6567); but in later practice they are written, in identical form, and
    signed by the managers of the two Houses (V, 6568, 6569).

    [[Page 276]]

    Sec. 546. Managers restricted to the
    disagreements of the two Houses.

      The managers  of a conference must confine
    themselves to the differences committed to them (V, 6417, 6418; VIII,
    3252, 3255, 3282), and may not include subjects not within the
    disagreements (V, 6407, 6408; VIII, 3253-3255, 3260, 3282, 3284), even
    though germane to a question in issue (V, 6419; VIII, 3256; Speaker
    Albert, Dec. 20, 1974, p. 41849). But they may perfect amendments
    committed to them if they do not in so doing go beyond the differences
    (V, 6409, 6413). Thus, where an amendment providing an appropriation to
    construct a road had been disagreed to, it was held in order to report a
    provision to provide for a survey for the road (V, 6425). Managers may
    not change the text to which both Houses have agreed (V, 6417, 6418,
    6420, 6433-6436). But where the amendment in issue strikes out all of
    the bill after the enacting clause and substitutes a new text, the
    managers have the whole subject before them and may exercise a broad
    discretion as to details (V, 6424; VIII, 3266), and may even report an
    entirely new bill on the subject (V, 6421, 6423; VIII, 3248, 3263, 3265,
    3276; see also Sec. 913). Where the amendment in disagreement proposes a
    substitute differing greatly from the House provision they may eliminate
    the entire subject matter (Speaker Gillett, Sept. 14, 1922, p. 12598).

    Sec. 547. Remedy where managers exceed their authority.

      In the  House of Representatives the Speaker may rule out a conference report
    if it be shown that the managers have exceeded their authority (V, 6409-
    6416; VIII, 3256; Oct. 4, 1962, pp. 22332-33). In the House points of
    order against reports are made or reserved after the report is read and
    before the reading of the statement (V, 6424, 6441; VIII, 3282, 3284,
    3285, 3287), or consideration begins (V, 6903-6905; VIII, 3286), and
    comes too late after the report has been agreed to (V, 6442); and in
    case the statement is read in lieu of the report the point of order must
    be made or reserved before the statement is read (VIII, 3256, 3265,
    3285, 3288, 3289). Where clause 2(c) of rule XXVIII applies, points of
    order must be made before debate begins on the report.

      In the Senate under the former practice the Chair did not rule out
    conference reports, but the Senate itself expressed its opinion on the
    vote to agree to the report (V, 6426-6432) but on March 8, 1918, the
    Senate adopted a rule providing for a point of order against conferees
    inserting matter not committed to them or changing the text agreed to by
    both Houses and also providing for automatic recommitting of such report
    to the committee of conference in case the point of order is sustained.
    This rule of the Senate has been strictly construed (VIII, 3273, 3275).

    Sec. 548. Meeting and action of
    managers.

      Before the  managers of a conference may report the other House must be
    notified of their appointment and a meeting must be held (V, 6458).
    Conferences are generally held in the Capitol, and formerly with closed
    doors, although in rare instances Members and others were admitted to
    make arguments (V, 6254, footnote, 6263). Clause 6 of rule XXVIII now
    provides for open conference meetings except where the House determines
    by rollcall vote that all or part of the meeting shall be closed to the
    public. The same rule now provides for a point of order in the House
    against the report and for an automatic request for a new conference if
    the House managers fail to meet in open session following appointment of
    the Senate conferees (Dec. 20, 1982, p. 32896). Rarely, also, papers in
    the nature of petitions have been referred to managers (V, 6263). The
    managers of the two Houses vote separately (V, 6336).

    [[Page 277]]
    not only a conference report and but also sundry motions to dispose of
    amendments reported from conference in disagreement (June 18, 1992, p.
    ----). While ordinarily reports are agreed to by majority vote, a two-
    thirds vote is required on a report relating to a constitutional
    amendment (V, 7036). Conference reports must be acted on in both Houses
    and in a case where the Senate had adopted a report which recommended
    that it recede from its amendments to a House Bill, the House rejected
    the report and then agreed to the Senate amendments (Mar. 21, 1956, p.
    5278). A conference report being made up but not acted on at the
    expiration of a Congress, the bill is lost (V, 6309). One House has, by
    message, reminded the other of its neglect to act on a conference
    report; but this was an occasion of criticism (V, 6309).

    Sec. 549. Action on a conference report in the
    two Houses.

      The report of  the managers of a conference goes first to one House and
    then to the other, neither House acting until it is in possession of the
    papers, which means the original bill and amendments, as well as the
    report (V, 6322, 6518-6522, 6586; VIII, 3301). The report must be acted
    on as a whole, being agreed to or disagreed to as an entirety (V, 6472-
    6480, 6530-6533; VIII, 3304, 3305; Speaker Bankhead, Aug. 22, 1940, p.
    10763; Speaker Albert, Nov. 10, 1971, pp. 40481-82); and until the
    report has been acted on no motion to deal with the individual
    amendments is in order (V, 6323, 6389, 6390; Speaker Rayburn, Mar. 16,
    1942, pp. 2502-04). Under a special order of business recommended by the
    Committee on Rules, the House has considered a single, indivisible
    motion to adopt

    Sec. 550. Motions in order during action on a
    conference report.

      When a  conference report is presented, the question on
    agreeing is regarded as pending (V, 6517; VIII, 3300), and as the
    negative of it is equivalent to disagreement, the motion to disagree is
    not admitted (II, 1473; V, 6517; VIII, 3300). The reading of the
    amendments to which the report relates is not in order during its
    consideration (V, 5298). The report may not be amended on motion made in
    either House alone (V, 6534, 6535; VIII, 3306), but amendment is
    sometimes made by concurrent action of the two Houses (V, 6536, 6537;
    VIII, 3308). A motion to refer to a standing committee (V, 6558) or to
    lay on the table is not entertained in the House (V, 6538-6544); and a
    conference report may not be sent to Committee of the Whole on
    suggestion that it contains matter ordinarily requiring consideration in
    that committee (V, 6559-6561). It is in order on motion to recommit a
    conference report if the other body, by action on the report, have not
    discharged their managers (V, 6545-6553, 6609; VIII, 3310), and by
    concurrent resolution a report may be recommitted to conference after
    each House has acted thereon (VIII, 3316), but such a proposition would
    not be privileged in the House (V, 6554-6557; VIII, 3309).

      A bill being recommitted to the committee of conference, no further
    action is taken by the House until it is again reported by the managers
    (VIII, 3326, 3327), and when reported is subject to another motion to
    recommit (VIII, 3325). Because instructions included in a motion to
    recommit a conference report are not binding, adoption of such a motion
    opens to further negotiation all issues committed to conference (Apr.
    21, 1988, p. 8198).

    [[Page 278]]
    question is as specified in those clauses and, depending on the nature
    of the text in disagreement, may be to recede and concur with an
    amendment, to insist on the House position, or to insist on disagreement
    (see Secs. 913b and 913c, infra).

    Sec. 551. Effect of disagreement to a conference
    report.

      When either  House disagrees to a conference report the matter is left in
    the position it was in before the conference was asked (V, 6525), and
    the amendments in disagreement come up for further action (II, 1473),
    but do not return to the state they were in before disagreement, so that
    they need not be considered in Committee of the Whole (V, 6589). Motions
    for disposition of Senate amendments, sending to conference and
    instruction of conferees, are again in order (VIII, 3303). However, if a
    conference report is considered as rejected pursuant to the provisions
    of clauses 4 or 5 of rule XXVIII because of the inclusion of nongermane
    matter, the pending

    Sec. 552. Custody of papers when a conference is asked
    before disagreement.

      A  conference may be asked, before the House asking
    it has come to a resolution of disagreement, insisting or adhering. 3
    Hats., 269, 341. In which case the papers are not left with the other
    conferees, but are brought back to the foundation of the vote to be
    given. And this is the most reasonable and respectful proceeding; for,
    as was urged by the Lords on a particular occasion, ``it is held vain,
    and below the wisdom of Parliament, to reason or argue against fixed
    resolutions, and upon terms of impossibility to persuade.'' 3 Hats.,
    226. * * *

      In the Houses of Congress conferences are sometimes asked before a
    disagreement, and while the rule as to retention of the papers
    undoubtedly holds good, neglect to observe it has not been questioned
    (V, 6585).

    [[Page 279]]
    299, 319, 322, 355; of adhering, 269, 270, 283, 300; and even of a
    second or final adherence. 3 Hats., 270. * * *

    Sec. 553. Relations of adherence and conference
    under the parliamentary law.

      * * * So the  Commons say, ``an adherence is never
    delivered at a free conference, which implies debate.'' 10 Grey, 137.
    And on another occasion the Lords made it an objection that the Commons
    had asked a free conference after they had made resolutions of adhering.
    It was then affirmed, however, on the part of the Commons that nothing
    was more parliamentary than to proceed with free conferences after
    adhering, 3 Hats., 269, and we do in fact see instances of conference,
    or of free conference, asked after the resolution of disagreeing, 3
    Hats., 251, 253, 260, 286, 291, 316, 349; of insisting, ib., 280, 290,

    Sec. 554. Relations of adherence and conference
    under the practice of the two Houses of Congress.

      The two Houses  not observing the
    parliamentary distinctions as to free and other conferences, their
    practice in case of adherence is also different. Conferences are not
    asked after an adherence by both Houses, but have often been asked and
    granted where only one House has adhered (V, 6241-6244). A vote to
    adhere may not be accompanied by a request for a conference (V, 6303;
    VIII, 3208), as the House that votes to adhere does not ask a conference
    (V, 6304-6308). The request for a conference in such a case is properly
    accompanied by a motion to insist (V, 6308). And the House that has
    adhered may insist on its adherence when it agrees to the conference (V,
    6251). But it is not considered necessary either to recede or insist
    before agreeing to the conference (V, 6242, 6244, 6310, 6311).

    Sec. 555. Custody of the papers after an
    effective conference.

      * * * And in  all cases of conference asked after a vote of
    disagreement, &c., the conferees of the House asking it are to leave the
    papers with the conferees of the other; and in one case where they
    refused to receive them they were left on the table in the conference
    chamber. Ib., 271, 317, 323, 354; 10 Grey, 146.

      This principle of the parliamentary law is recognized as of effect in
    the two Houses of Congress, and is customarily followed in cases wherein
    the managers of the conference come to an agreement on which a report
    may be based (July 31, 1981, pp. 18884-85). If conferees of House
    agreeing to conference surrender papers to House asking conference, the
    report can be received first by House asking the conference (VIII,
    3330). In the 101st Congress, where a report following a successful
    conference was filed in both Houses, an objection to a unanimous consent
    request in the Senate prevented the release of papers held at the Senate
    desk to the House, where the Senate in the normal course of events was
    scheduled to act first on the report (June 28, 1990, p. ----).

    [[Page 280]]
    pers were taken back to the Senate, which was the body agreeing to the
    conference, the Senate after consideration sent them to the House, since
    it seemed proper for the asking House to take the first action (V,
    6573). But sometimes managers have brought the papers to the agreeing
    House without question (V, 6239, footnote; July 14, 1988, p. 18411).

    Sec. 556. Custody of papers when managers of a
    conference fail to agree.

      But where a  conference breaks up without reaching any
    agreement the managers for the House which asked the conference, who
    have the papers by right, are justified in retaining them and carrying
    them back to the House (IV, 3905 footnote, V, 6246, 6254, 6571-6584;
    VIII, 3332). And in one case wherein under such circumstances the pa

    Sec. 557. Free or instructed conferences.

      After a  free
    conference the usage is to proceed with free conferences and not to
    return again to a conference. 3 Hats., 270; 9 Grey, 229.

      After a conference denied a free conference may be asked. 1 Grey, 45.

      The House of Representatives instructs its managers whenever it sees
    fit, without regard to whether or not the preceding conference has been
    free or instructed.

    [[Page 281]]
    were sometimes communicated by way of conference. 6 Grey, 128, 300,
    387; 7 Grey, 80; 8 Grey, 210, 255; 1 Torbuck's Deb., 278; 10 Grey, 293;
    1 Chandler, 49, 287. But this is not the modern practice. 8 Grey, 255.
    <>   A conference has been asked after the first reading of a
    bill. 1 Grey, 194. This is a singular instance.

    Sec. 558. Parliamentary law as to purposes for which
    conferences may be held.

      When a  conference is asked, the subject of it must
    be expressed or the conference not agreed to. Ord. H. Com., 89; 1 Grey,
    425; 7 Grey, 31. They are sometimes asked to inquire concerning an
    offense or default of a member of the other House. 6 Grey, 181; 1
    Chand., 304. Or the failure of the other House to present to the King a
    bill passed by both Houses. 8 Grey, 302. Or on information received and
    relating to the safety of the nation. 10 Grey, 171. Or when the methods
    of Parliament are thought by the one House to have been departed from by
    the other a conference is asked to come to a right understanding
    thereon. 10 Grey, 148. So when an unparliamentary message has been sent,
    instead of answering it they ask a conference. 3 Grey, 155. Formerly an
    address or articles of impeachment or a bill, with amendments, or a vote
    of the House, or concurrence in a vote, or a message from the King

      The House of Representatives has no procedure conforming to this
    provision.