[Constitution, Jefferson's Manual, and the Rules of the House of Representatives, 104th Congress]
[104th Congress]
[House Document 103-342]
[Rules of the House of Representatives]
[Pages 669-691]
[From the U.S. Government Publishing Office, www.gpo.gov]



[[Page 669]]

 

                               Rule XXIII.


                    OF COMMITTEES OF THE WHOLE HOUSE.




Sec. 861a. Selection of Chairman of Committee of the 
Whole; and his power to preserve order.

  1. (a) In  all cases, in forming a 
Committee of the Whole House, the Speaker shall leave his chair after 
appointing a Member as Chairman to preside, who shall, in case of 
disturbance or disorderly conduct in the galleries or lobby, have power 
to cause the same to be cleared.


  This provision, adopted in 1880, was made from two older rules dating 
from 1789 and modified in 1794 to provide for the appointment of the 
Chairman instead of the inconvenient method of election by the committee 
(IV, 4704). It was amended in the 103d Congress to permit Delegates and 
the Resident Commissioner to preside in the Committee of the Whole (H. 
Res. 5, Jan. 5, 1993, p. ----), but that authority was repealed in the 
104th Congress (sec. 212(b), H. Res. 6, Jan. 4, 1995, p. ----). 
Delegates presided in two instances during the 103d Congress (Oct. 6, 
1994, p. ----; Oct. 7, 1994, p. ----).


[[Page 670]]
case he reports in the regular way (IV, 4785; VIII, 2376; Aug. 22, 
1974, p. 30077); but if the committee happens to be in session at the 
hour fixed for the meeting of the House on a new legislative day, it 
rests with the committee and not with the Chairman to determine whether 
or not the committee shall rise (V, 6736, 6737).



Sec. 861b. Functions of the Chairman of the Committee of 
the Whole.

  The  Sergeant-at-Arms attends the sittings of the Committee of 
the Whole and, under direction of the Chairman, maintains order (I, 
257). His decisions on questions of order may be appealed; and in 
stating the appeal, the question is put as in the House: ``Shall the 
decision of the Chair stand as the judgment of the Committee?'' and a 
majority vote sustains the ruling (Aug. 1, 1989, p. 17159). In rare 
cases wherein the Chairman has been defied or insulted he has directed 
the committee to rise, left the chair and, on the chair being taken by 
the Speaker, has reported the facts to the House (II, 1350, 1651, 1653). 
While the Committee of the Whole does not control the Congressional 
Record, the Chairman may direct the exclusion of disorderly words spoken 
by a Member after he has been called to order (V, 6987), but may not 
determine the privileges of a Member under general ``leave to print'' 
(V, 6988). The Chairman decides questions of order arising in the 
committee independently of the Speaker (V, 6927, 6928), but has declined 
to consider a question that had arisen in the House just before the 
committee began to sit (IV, 4725, 4726) or a question that may arise in 
the House in the future (June 21, 1995, p. ----). He recognizes for 
debate (V, 5003); but like the Speaker is forbidden to recognize for 
requests to suspend the rule of admission to the floor (V, 7285). He may 
direct the committee to rise when the hour previously fixed for 
adjournment of the House arrives, or when the hour previously fixed by 
the House for consideration of other business arrives, in which 





Sec. 862. Speaker's declaration into Committee 
of the Whole pursuant to special order.

  (b) After the  House has adopted a special 
order of business resolution reported by the Committee on Rules 
providing for the consideration of a measure in the Committee of the 
Whole House on the state of the Union, the Speaker may at any time 
within his discretion, when no question is pending before the House, 
declare the House resolved into the Committee of the Whole House on the 
state of the Union for the consideration of that measure without 
intervening motion, unless the resolution in question provides 
otherwise.


  Paragraph (b) was added in the 98th Congress (H. Res. 5, Jan. 3, 1983, 
p. 34).


[[Page 671]]
tinue its business; but if a quorum does not appear, the Committee 
shall rise and the Chairman shall report the names of the absentees to 
the House. After the roll has been once called to establish a quorum 
during such day, the Chairman may not entertain a point of order that a 
quorum is not present unless the Committee is operating under the five-
minute rule and the Chairman has put the pending motion or proposition 
to a vote; and if the Chairman sustains a point of order that a quorum 
is not present after putting the question on such a motion or 
proposition, he may announce that following a regular quorum call 
conducted pursuant to the previous provisions of this clause, he will 
reduce to not less than five minutes the period of time within which a 
recorded vote on the pending question may be taken if such a vote is 
ordered. If, at any time during the conduct of any quorum call in a 
Committee of the Whole, the Chairman determines that a quorum is 
present, he may, in his discretion and subject to his prior 
announcement, declare that a quorum is constituted. Proceedings under 
the call shall then be considered as vacated, and the Committee shall 
not rise but shall continue its sitting and resume its business.



Sec. 863. Failure of a quorum in Committee of the 
Whole.

  2. (a) A  quorum of a Committee of the Whole shall consist of one hundred 
Members. The first time that a Committee of the Whole finds itself 
without a quorum during any day, the Chairman shall invoke the procedure 
for the call of the roll under clause 5 of rule XV, unless, in his 
discretion, he orders a call of the Committee to be taken by the 
procedure set forth in clause 1 or clause 2(b) of rule XV: Provided, 
That the Chairman may in his discretion refuse to entertain a point of 
order that a quorum is not present during general debate only. If on 
such call, a quorum shall appear, the Committee shall con



[[Page 672]]
2 was substantially changed to allow quorum calls only under the five-
minute rule where the Chairman has put the question on a pending 
proposition, after a quorum of the Committee of the Whole has been once 
established on that day. The Chairman of the Committee of the Whole must 
entertain a point of order of no quorum during the five-minute rule if a 
quorum has not yet been established in the Committee on the bill then 
pending (and the fact that a quorum of the Committee has previously been 
established on another bill on that day is irrelevant during 
consideration (Sept. 19, 1984, p. 26082). Where a recorded vote on a 
prior amendment or motion during the five-minute rule on that bill on 
that day has established a quorum, a subsequent point of no quorum 
during debate is precluded except by unanimous consent (May 10, 1984, p. 
11869; Dec. 17, 1985, p. 37469; June 25, 1986, p. 15551; June 3, 1992, 
p. ----).
  It was the early practice for the Committee of the Whole to rise on 
finding itself without a quorum (IV, 2977), and it was not until 1847 
that a rule was adopted. The rule was amended in 1880, again in 1890 
(which included the concept that a quorum in the Committee should be one 
hundred rather than a quorum of the House (IV, 2966)), and in 1971 (Jan. 
22, 1971, p. 144). On October 13, 1972 (H. Res. 1123, p. 36012) the rule 
was amended to reflect the installation of the electronic voting system 
in the House Chamber, and on January 4, 1977 (H. Res. 5, 95th Cong., pp. 
53-70) clause 

  The clause was amended again in the 96th Congress (H. Res. 5, Jan. 15, 
1979, pp. 7-16) to permit the Committee to continue its business 
following the appearance of a quorum so that the Speaker need not take 
the chair to receive the Committee's report of absentees as in previous 
practice, and to enable the Chairman to reduce to five minutes the 
period for a recorded vote immediately following a regular quorum call. 
A vote by division is not such intervening business as would preclude a 
five-minute vote under this clause (July 22, 1994, p. ----). In the 97th 
Congress (H. Res. 5, Jan. 5, 1981, p. 98) the rule was amended to allow 
the Chairman the discretion whether or not to entertain a point of order 
of no quorum during general debate only.

  The last two sentences of the clause, permitting the Chair to vacate 
proceedings under the call in his discretion when a quorum appears, were 
added on April 9, 1974 (H. Res. 998, 93d Cong., pp. 10195-99). The 
Speaker interpreted the last two sentences of this clause to permit the 
Chairman of the Committee of the Whole to announce in advance, at the 
time that the absence of a quorum is ascertained, that he will vacate 
proceedings when a quorum appears, and to convert to a regular quorum 
call if a quorum does not appear at any time during the call (May 13, 
1974, pp. 14148-49).

  The Chair need not convert to a regular quorum call precisely at the 
expiration of 15 minutes if 100 Members have not responded on a 
``notice'' quorum call but may continue to exercise his discretion to 
vacate proceedings at any time during the entire period permitted for 
the conduct of the call by clause 5 of rule XV (July 17, 1974, p. 
23673).


[[Page 673]]

  Under the modern practice, when a Committee of the Whole finds itself 
without a quorum, the Chairman normally directs that Members record 
their presence by electronic device. The Chair may however, in his 
discretion, order that Members respond by the alternative procedures in 
clause 1 of rule XV (alphabetical call of the roll) or clause 2(b) of 
rule XV (clerk tellers) (for the use of clerk tellers for a ``notice'' 
quorum call in Committee of the Whole, see July 13, 1983, p. 18858). 

  Before the installation of the electronic system, a quorum in the 
Committee was established by a call of the roll. At one time the roll 
was called but once (IV, 2967); but in the later practice it was called 
twice as on other roll calls (VI, 668). Where the Committee has risen to 
report the absence of a quorum, it resumes its session by direction of 
the Speaker on the appearance of a quorum (IV, 2968; VI, 674). The 
quorum which must appear to permit the committee to continue its 
business is a quorum of the committee and not of the House (IV, 2970, 
2971) but if such quorum fails to appear, a quorum of the House is 
required (VI, 674). It was formerly held that after the committee has 
risen and reported its roll call, a motion to adjourn is in order before 
direction as to resumption of the session (IV, 2969), but under the 
later practice the committee immediately resumed its session without 
intervening motion or unanimous consent requests (VI, 672, 673; VIII, 
2377, 2379, 2436). The failure of a quorum of the House to answer on 
this roll call does not interfere with the authority of the Speaker to 
direct the committee to resume its session (IV, 2969). The Chairman's 
count of a quorum is not subject to verification by tellers (VIII, 2369, 
2436), may not be challenged by an appeal (July 24, 1974, p. 25012), and 
he may count those present and not voting in determining whether a 
quorum is present (VI, 641). On a division vote totaling less than 100, 
the Chair has relied on his immediately prior count on a point of no 
quorum and on his observation of several Members present but not voting 
on the division vote in finding the presence of a quorum of the 
Committee of the Whole (June 29, 1988, p. 16504). No quorum being 
present when a vote is taken in Committee of the Whole, and the 
committee having risen before a quorum appeared, such vote is invalid, 
and the question is put de novo when the committee resumes its business 
(VI, 676, 677). While an ``automatic'' roll call (under clause 4 of rule 
XV) is not in order in Committee of the Whole, a point of order of no 
quorum may intervene between the announcement of a division vote result 
and prior to transaction of further business, and a demand for a 
recorded vote following the quorum call is not thereby precluded (Oct. 
9, 1975, p. 32598). Where a recorded vote is refused but the Chair has 
not announced the result of a voice vote on an amendment, and the demand 
for a division or teller vote remains possible, the question remains 
pending and the Chair is obligated to entertain a point of order of no 
quorum under clause 2(a) of rule XXIII (June 6, 1979, p. 13648).


[[Page 674]]
2369) and takes precedence over a motion to amend (May 21, 1992, p. --
--); however the motion cannot interrupt a Member who has the floor 
(VIII, 2370-2371) and may be ruled out when dilatory (VIII, 2800). For a 
further discussion of the motion to rise, see Sec. 334, supra.


Sec. 864. Rising and reports of Committee of the 
Whole.

  The presence  of a quorum is not necessary for adoption of a motion that the 
Committee of the Whole rise (IV, 2975, 2976, 4914; clause 6(b) of rule 
XV; Mar. 5, 1980, pp. 4801-02; Oct. 3, 1985, p. 26096; May 21, 1992, p. 
----); but when the committee rises without a quorum, it may not report 
the bills it has acted on (IV, 2972, 2973), and such bills as have been 
laid aside to be reported remain in the committee until the next 
occasion, when the committee rises without question as to a quorum (IV, 
4913). A simple motion that the Committee of the Whole rise is 
privileged (VIII, 



  Under clause 6 of rule XV, as added in the 93d Congress (H. Res. 998, 
Apr. 9, 1974, p. 10199), a point of order of no quorum may not be 
entertained, on a day on which a quorum has been established, during the 
period after the Committee of the Whole has risen after completing its 
consideration of a bill or resolution and before the Chairman of the 
Committee has reported the bill or resolution back to the House. The 
fact that the vote whereby the committee rises does not show a quorum 
(IV, 4914) or that a point of no quorum has been made without an 
ascertainment thereof (IV, 2974), does not prevent a report of the bills 
already acted on. The Chairman having announced the absence of a quorum 
in Committee of the Whole, a motion to rise is in order and if a quorum 
develops on the vote by which the motion is rejected the roll is not 
called and the committee proceeds with its business (VIII, 2369). The 
passage of a bill by the House is not invalidated by the fact that the 
Committee of the Whole reported it on an erroneous supposition that a 
record vote had disclosed a quorum (IV, 2972).


  (b) In the Committee of the Whole, the Chair shall order a recorded 
vote on request supported by at least twenty-five Members.


-  (c) In the <> Committee of the Whole, the Chairman may, in his discretion, 
reduce to not less than five minutes the period of time within which a 
rollcall vote by electronic device may be taken without any intervening 
business or debate on any or all pending amendments after the vote has 
been taken on the first pending amendment.

  This clause was adopted in the 96th Congress (H. Res. 5, Jan. 15, 
1979, pp. 7-16).



[[Page 675]]

  This paragraph was added in the 102d Congress (H. Res. 5, Jan. 3, 
1991, p. ----). A vote by division is not such intervening business as 
would preclude a five-minute vote under this clause (July 22, 1994, p. 
----).



Sec. 864b. Former provision for de novo vote where Delegates 
decisive.

    When the 103d Congress enabled voting by the Delegates and 
the Resident Commissioner in the Committee of the Whole, it also added a 
paragraph (d) to clause 2 of rule XXIII to provide for immediate 
reconsideration in the House of questions resolved in the Committee of 
the Whole House on the state of the Union by a margin within which the 
votes of Delegates and the Resident Commissioner have been decisive (H. 
Res. 5, Jan. 5, 1993, p. ----). When the 104th Congress repealed the 
authority for the Delegates and the Resident Commissioner to vote in the 
Committee of the Whole, it also repealed clause 2(d) (sec. 212(c), H. 
Res. 6, Jan. 4, 1995, p. ----).



  Under the former paragraph (d), whether the votes cast by the 
delegates were decisive was determined by a ``but for'' test, the 
question being whether the result would have been different if their 
votes were not counted (May 19, 1993, p.----). An amendment adopted by 
immediate proceedings de novo in the House under the former paragraph 
(d) did not disturb the sequence of a ``king-of-the-hill'' procedure 
established by a special rule waiving all points of order against 
subsequent amendments (Mar. 17, 1994, p.----).




Sec. 865. Subjects requiring consideration in 
Committee of the Whole.

  3. All motions  or propositions involving a tax or charge upon 
the people, all proceedings touching appropriations of money, or bills 
making appropriations of money, or property, or requiring such 
appropriation to be made, or authorizing payments out of appropriations 
already made, or releasing any liability to the United States for money 
or property, or referring any claim to the Court of Claims, shall be 
first considered in a Committee of the Whole, and a point of order under 
this rule shall be good at any time before the consideration of a bill 
has commenced.



[[Page 676]]

  The first form of this rule was adopted in 1794, and it has been 
perfected by amendments in 1874 and 1896 (IV, 4792).



Sec. 866. Construction of the rule, requiring 
consideration in Committee of the Whole.

  To require  consideration in Committee 
of the Whole, a bill must show on its face that it falls within the 
requirements of the rule (IV, 4811-4817; VIII, 2391), but where the 
expenditure is a mere matter of speculation (IV, 4818-4821; VIII, 2388), 
or where the bill might involve a charge, but does not necessarily do so 
(IV, 4809, 4810), the rule does not apply. In passing upon the question 
as to whether a proposition involves a charge upon the Treasury, the 
Speaker is confined to the provisions of the text and may not take into 
consideration personal knowledge not directly deducible therefrom (VIII, 
2386, 2391). Resolutions reported by the Committee on House 
Administration (now House Oversight) appropriating from the contingent 
fund of the House are considered in the House (VIII, 2415, 2416). 
Authorizations of expenditures from the contingent fund, under the later 
ruling (IV, 4862-4867) do not fall within the specifications of the rule 
(IV, 4868). A bill providing for an expenditure which is to be borne 
otherwise than by the Government (IV, 4831; VIII, 2400), or relating to 
money in the Treasury in trust (IV, 4835, 4836, 4853; VIII, 2413), is 
not governed by the rule. But where a bill sets in motion a train of 
circumstances destined ultimately to involve certain expenditures, it 
must be considered in Committee of the Whole (IV, 4827; VIII, 2399), as 
must also bills ultimately authorizing officials in certain 
contingencies to part with property belonging to the United States 
(VIII, 2399). The requirements of the rule apply to amendments as well 
as to bills (IV, 4793, 4794; VIII, 2331), and also to any portion of a 
bill requiring an appropriation, even though it be merely incidental to 
the bill's main purpose (IV, 4825). Under the later practice general (as 
well as private and special) bills providing for the adjudication and 
payment of claims are held to be within the requirements of the rule 
(IV, 4856-4859).



[[Page 677]]
necessarily subject to the point of order that it must be considered in 
Committee of the Whole (IV, 4828, 4829; V, 5545, 5546, 5591).


Sec. 867. Subjects not requiring consideration in 
Committee of the Whole.

  The  House may consider in Committee of the Whole 
subjects not specified in the rule (IV, 4822); for example, major 
amendments to the rules of the House have been considered in Committee 
of the Whole pursuant to special orders (H. Res. 988, Committee Reform 
Amendments of 1974, considered in Committee of the Whole pursuant to H. 
Res. 1395, Sept. 30, 1974, p. 32953; H.R. 17654, Legislative 
Reorganization Act of 1970, considered in Committee of the Whole 
pursuant to H. Res. 1093, July 13, 1970, p. 23901). While conference 
reports were formerly considered in Committee of the Whole, they may not 
be sent there on the suggestion of the point of order that they contain 
matter ordinarily requiring consideration therein (V, 6559-6561). When a 
bill is made a special order (IV, 3216-3224), or when unanimous consent 
is given for its consideration (IV, 4823; VIII, 2393), the effect is to 
discharge the Committee of the Whole and bring the bill before the House 
itself for its consideration (IV, 3216; VII, 788), and in such event the 
bill is considered ``in the House as in the Committee of the Whole'' 
(VIII, 2393). When a bill once considered in Committee of the Whole is 
recommitted, it is not, when again reported, 




Sec. 868. General practice as to consideration in 
Committee of the Whole.

  Provisions  placing liability jointly on the United States 
and the District of Columbia (IV, 4833), granting an easement on public 
lands or in streets belonging to the United States (IV, 4840-4842), 
dedicating public land to be forever used as a public park (IV, 4837, 
4838), providing site for statue (VIII, 2405), confirming grants of 
public lands (IV, 4843) and creating new offices (IV, 4824, 4846), have 
been held to require consideration in Committee of the Whole. Indian 
lands have not been considered ``property'' of the Government within the 
meaning of the rule (IV, 4844, 4845; VIII, 2413). And while a bill 
removing the rate of postage has been held to be within the rule as 
``involving a tax or charge'' (IV, 4861), taxes on bank circulation have 
not been so considered (IV, 4854, 4855).



  The mere making of a unanimous consent request to dispense with the 
reading of an amendment and to revise and extend remarks thereon is not 
such intervening business as would render a point of order untimely, 
where the Member making the point of order is on his feet seeking 
recognition (July 16, 1991, p. ----; see Procedure, ch. 31, sec. 5.7).




Sec. 869. Order of business in Committee of the 
Whole.

  4. In  Committees of the Whole House business on their calendars may 
be taken up in regular order, or in such order as the committee may 
determine, unless the bill to be considered was determined by the House 
at the time of going into committee, but bills for raising revenue, 
general appropriation bills, and bills for the improvement of rivers and 
harbors shall have precedence.


  This rule applies to the two committees of the whole which have been 
established by the practice of the House (IV, 4705), the Committee of 
the Whole House on the state of the Union, which considers public bills, 
and the Committee of the Whole House, which considers private business 
(IV, 3115). The early practice left the order of taking up bills to be 
determined entirely by the committee, but in 1844 the House began by 
rule to regulate the order, and in 1880 adopted the present rule (IV, 
4729). The latter portion of the rule is rarely used, since the ordinary 
practice is to consider general appropriation bills under clause 9 of 
rule XVI, which gives privilege to motions to go into committee to 
consider a designated bill of this class (IV, 3072).



[[Page 678]]
(IV, 4730) or a motion to take up a specified bill out of its order 
(IV, 4731, 4732; VIII, 2333). Except in cases wherein the rules make 
specific provisions therefor a motion is not in order in the House to 
fix the order in which business on the calendars of the Committee of the 
Whole shall be taken up (IV, 4733). The Committee of the Whole having 
voted to consider a particular bill, and consideration having begun, a 
motion to reconsider or change that vote is not in order (IV, 4765). 
When there is unfinished business in Committee of the Whole, it is 
usually first in order (IV, 4735; VIII, 2334).

-  5. (a) When <> general debate is closed by 
order of the House, any Member shall be allowed five minutes to explain 
any amendment he may offer, after which the Member who shall first 
obtain the floor shall be allowed to speak five minutes in opposition to 
it, and there shall be no further debate thereon, but the same privilege 
of debate shall be allowed in favor of and against any amendment that 
may be offered to an amendment; and neither an amendment nor an 
amendment to an amendment shall be withdrawn by the mover thereof unless 
by the unanimous consent of the committee. Upon the offering of any 
amendment by a Member, when the House is meeting in the Committee of the 
Whole, the Clerk shall promptly transmit to the majority committee table 
five copies of the amendment and five copies to the minority committee 
table. Further, the Clerk shall deliver at least one copy of the 
amendment to the majority cloak room and at least one copy to the 
minority cloak room.

  The power of the committee to determine the order of considering bills 
on its calendar is construed to authorize a motion to establish an order 


[[Page 679]]
of the Whole both as to the bill generally and also as to any 
amendment; but in 1841 the rule that no Member should speak more than an 
hour was applied both to the Committee of the Whole and the House. At 
the same time another rule was adopted to prevent indefinite 
prolongation of debate in Committee of the Whole by permitting the House 
by majority vote to order the discharge of the Committee of the Whole 
from the consideration of a bill after acting, without debate, on 
pending amendments and any other amendments that might be offered. The 
effect of this was to empower the House to close general debate at any 
time after it had actually begun in the committee; and thereby to 
require amendments to be voted on without debate. In 1847 a rule 
provided that any Member proposing an amendment should have five minutes 
in which to explain it, and in 1850 an amendment to the rule permitted 
also five minutes in opposition and guarded against abuse by forbidding 
the withdrawal of an amendment when once offered (V, 5221). In the 104th 
Congress the Speaker announced his intention to strictly enforce time 
limitations on debate (Jan. 4, 1995, p. ----). The last two sentences of 
this clause, placing upon the Clerk the responsibility for providing 
copies of amendments, was part of the Legislative Reorganization Act of 
1970 (sec. 124; 84 Stat. 1140) and was added to the rule in the 92d 
Congress (H. Res. 5, Jan. 22, 1971, p. 144). The fact that copies of an 
amendment have not been made available as required in this clause is not 
grounds for a point of order against the amendment (June 21, 1974, p. 
20609; Mar. 25, 1976, p. 7997).
  A rule of 1789 provided that bills should be read and debated in 
Committee of the Whole and in the House by clauses. Although that rule 
has disappeared, the practice continues in Committee of the Whole, 
although not in the House. Originally there was unlimited debate in 
Committee 


[[Page 680]]
time is present at the appropriate time during general debate in 
Committee of the Whole, the Chair may presume the time to have been 
yielded back (June 11, 1984, p. 15744). Motions for disposition of the 
bill are not in order before general debate is closed (IV, 4778); nor 
may a Member, in time yielded to him for general debate, move that the 
Committee rise (May 25, 1967, p. 14121) or yield to another for such 
motion (Feb. 22, 1950, p. 2178).-


Sec. 871. Motion to close general debate in 
Committee of the Whole.

  The motion  to close general debate in Committee of the 
Whole, successor in the practice to the motion to discharge provided by 
the rule of 1841, is made in the House pending the motion that the House 
resolve itself into committee, and not after the House has voted to go 
into committee (V, 5208); and though not debatable, the previous 
question is sometimes ordered on it to prevent amendment (V, 5203); and 
in case the previous question is ordered, the 40 minutes debate under 
clause 2 of rule XXVII is not allowed (VIII, 2555, 2690). General debate 
must have already begun in Committee of the Whole before the motion to 
limit it is in order in the House (V, 5204-5206). The motion may not 
apply to a series of bills (V, 5209) and the motion in the House to 
limit debate on a bill in the Committee of the Whole must apply to the 
whole and not to a part of a bill (V, 5207). A proposition for a 
division of time may not be made as a part of it (V, 5210, 5211). The 
motion may not be made in Committee of the Whole (V, 5217; VIII, 2548); 
but in absence of an order by the House the Committee of the Whole may 
be unanimous consent determine as to general debate (V, 5232; VIII, 
2553). Where the House has fixed the time the committee may not, even by 
unanimous consent, extend it (V, 5212-5216; VIII, 2321, 2550; Mar. 27, 
1984, p. 6599). The general debate must close before amendments may be 
offered (IV, 4744; V, 5221); and it is closed by the fact that no Member 
desires to participate further (IV, 4745). Where no member of a 
committee designated to control 



[[Page 681]]
ponent and an opponent, the five-minute rule is abrogated and the 
Members controllng the debate may yield and reserve time; whereas debate 
time on amendments under the five-minute rule cannot be reserved (Aug. 
1, 1990, p. ----). A Member recognized under the five-minute rule may 
not yield to another Member to offer an amendment (Dec. 12, 14, 1973, 
pp. 41171, 41716; Sept. 8, 1976, p. 29243; Mar. 7, 1995, p. ----).


Sec. 872. Reading and amendment under the 
fiveminute rule.

  The reading  of the bill for amendment is not specifically 
required by the present form of the rule; but is done under a practice 
which was originally instituted by the rule of 1789 and has continued, 
although the rule was eliminated, undoubtedly by inadvertence, in the 
codification of 1880 (V, 5221). Revenue, general appropriation, 
lighthouse, and river and harbor bills are generally read by paragraphs; 
other bills by sections (IV, 4738, 4740); and while the matter is very 
largely in the discretion of the Chair (VIII, 2341, 2344, 2346), the 
Committee of the Whole has overruled his decision (VIII, 2347). A bill 
(or the remainder of a bill) may be considered as having been read and 
open to amendment by unanimous consent but not by motion (June 18, 1976, 
p. 19296). A Senate amendment, however, is read in entirety, and not by 
either paragraphs or sections (V, 6194) and an amendment in the nature 
of a substitute offered from the floor must also be read in its entirety 
and is then open to amendment at any point, and a unanimous consent 
request in Committee of the Whole that it be read by sections for 
amendment is not in order (Mar. 25, 1975, p. 8490). The Committee of the 
Whole may not, even by unanimous consent, prohibit the offering of an 
amendment otherwise in order under the five-minute rule (July 31, 1984, 
p. 21701; Mar. 7, 1995, p. ----). When a paragraph or section has been 
passed it is not in order to return thereto (IV, 4742, 4743) except by 
unanimous consent (IV, 4746, 4747; Deschler's Precedents, vol. 8, ch. 
26, sec. 2.26) or when, the reading of the bill being concluded and a 
motion to rise being decided in the negative, the committee on motion 
votes to return (IV, 4748). Where a bill is considered as read and open 
to amendment at any point, adoption of an amendment adding a new section 
at the end of the bill does not preclude subsquent amendments to 
previous sections of the bill (Apr. 17, 1986, p. 7861). But the chairman 
may direct a return to a section whereon, by error, no action was had on 
a pending amendment (IV, 4750). Points of order against a paragraph 
should be made before the next paragraph is read (V, 6931; VIII, 2351). 
The paragraph or section having been read, and an amendment offered, the 
right to explain or oppose that amendment has precedence of a motion to 
amend it (IV, 4751). In this debate recognitions are governed by the 
conditions of the pending question rather than by the general relations 
of majority and minority (V, 5223). The Member recognized may not yield 
time (V, 5035-5037; May 8, 1987, p. 11832; Dec. 10, 1987, p. 34686) and 
must confine himself to the subject (V, 5240-5256; VIII, 2591). Where 
debate on an amendment is limited or allocated by special order to a pro


  Where the Chair recognizes the proponent of an amendment to propound a 
unanimous consent request to modify the text of the amendment before 
commencing debate thereon, the Chair does not charge time consumed under 
a reservation of objection against the proponent's time for debate on 
the amendment (Feb. 3, 1993, p. ----; May 27, 1993, p. ----).-



[[Page 682]]



Sec. 873a. Pro forma amendments under the fiveminute 
rule.

  The pro  forma amendment to ``strike out the last word'' has long been 
used for purposes of debate or explanation where an actual amendment is 
not contemplated (V, 5778; VIII, 2591); but a pro forma amendment must 
be voted on unless withdrawn (VIII, 2874). A Member who has occupied 
five minutes on a pro forma amendment may not lengthen this time by 
making another pro forma amendment (V, 5222; VIII, 2560), nor may he 
then extend this time by offering a substantive amendment while other 
Members are seeking recognition (July 28, 1965, p. 18631). A Member 
recognized to offer a pro forma amendment under the five-minute rule may 
not during that time offer a substantive amendment but must be 
separately recognized for that purpose by the Chair (Nov. 19, 1987, p. 
32880). A Member may speak in opposition to a pending amendment and 
subsequently offer a pro forma amendment and debate that (June 30, 1955, 
p. 9614); a Member may offer a pro forma amendment to debate a second 
degree amendment and then offer another pro forma amendment to debate 
the underlying first degree amendment (June 28, 1995, p. ----); and a 
Member who has debated a substantive amendment may thereafter rise in 
opposition to a pro forma amendment thereto (July 20, 1951, p. 8566). A 
Member who has offered a substantive amendment and then debated it for 
five minutes may not extend his time by offering a pro forma amendment, 
as it is not in order for the offeror of an amendment to amend his own 
amendment except by unanimous consent (Oct. 14, 1987, p. 27898). A pro 
forma amendment may be offered after a substitute has been adopted and 
before the vote on the amendment, as amended, by unanimous consent only, 
since the amendment has been amended in its entirety and no further 
amendments, including pro forma amendments, are in order (Oct. 18, 1983, 
p. 28185; June 28, 1995, p. ----). A Member recognized on a pro forma 
amendment may not allocate or reserve time, though he may in yielding 
indicate to the Chair when he intends to reclaim his time (May 19, 1987, 
p. 12811; July 13, 1994, p. ----). The Chair endeavors to alternate 
recognition to offer pro forma amendments between majority and minority 
Members (giving priority to committee members) rather than between sides 
of the question (Mar. 21, 1994, p. ----).





Sec. 873b. Motion to dispense with reading.

  (b) It  shall be 
in order to move in the Committee of the Whole to dispense with the 
reading of an amendment if the amendment has been printed in the bill as 
reported from a committee, or if any Member shall have caused the 
amendment to be printed in the Congressional Record, and to be submitted 
to the clerk, or to any responsible staff member designated by the 
Chairman, of the reporting committee or committees, at least one day 
prior to floor consideration, and said motion shall be decided without 
debate.



  Paragraph (b) was added in the 97th Congress (H. Res. 5, Jan. 5, 1981, 
pp. 98-113) to permit a motion to dispense with the reading of certain 
amendments in the Committee of the Whole.




Sec. 873c. Unfunded mandates.

  (c) In the  consideration of 
any measure for amendment in the Committee of the Whole containing any 
Federal mandate the direct costs of which exceed the threshold in 
section 424(a)(1) of the Unfunded Mandate[s] Reform Act of 1995, it 
shall always be in order, unless specifically waived by terms of a rule 
governing consideration of that measure, to move to strike such Federal 
mandate from the portion of the bill then open to amendment.



-
[[Page 683]]

  Paragraph (c) was added by the Unfunded Mandates Reform Act of 1995 
(sec. 107(a), P.L. 104-4; 109 Stat. 63), to be effective on January 1, 
1996, or 90 days after appropriations are made available to the 
Congressional Budget Office pursuant to that Act, whichever is earlier. 
The section 424(a)(1) cited in the rule is actually in part B to title 
IV of the Congressional Budget Act of 1974 (2 U.S.C. 658c(a)(1)), as 
added by the Unfunded Mandates Reform Act of 1995 (sec. 101, P.L. 104-4; 
109 Stat. 50-60).


[[Page 684]]
ted for printing in that portion of the Record shall be given numerical 
designations in the order printed.



Sec. 874. Closing the fiveminute debate in 
Committee of the Whole.

  6. The committee  may, by the vote of a majority of the Members 
present, at any time after the five minutes' debate has begun upon 
proposed amendments to any section or paragraph of a bill, close all 
debate upon such section or paragraph or, at its election, upon the 
pending amendments only (which motion shall be decided without debate); 
but this shall not preclude further amendment, to be decided without 
debate. However, if debate is closed on any section or paragraph under 
this clause before there has been debate on any amendment which any 
Member shall have caused to be printed in the Congressional Record after 
the reporting of the bill by the committee but at least one day prior to 
floor consideration of such amendment, the Member who caused such 
amendment to be printed in the Record shall be given five minutes in 
which to explain such amendment, after which the first person to obtain 
the floor shall be given five minutes in opposition to it, and there 
shall be no further debate thereon; but such time for debate shall not 
be allowed when the offering of such amendment is dilatory. Material 
placed in the Record pursuant to this provision shall indicate the full 
text of the proposed amendment, the name of the proponent Member, the 
number of the bill to which it will be offered and the point in the bill 
or amendment thereto where the amendment is intended to be offered, and 
shall appear in a portion of the Record designated for that purpose. All 
amendments to a specified measure submit


  This clause was adopted in 1860, with amendment in 1880 and 1885 (V, 
5221, 5224). The second sentence of this clause, permitting ten minutes 
debate on an amendment which has been printed in the Record even though 
debate has been closed by the Committee of the Whole, was inserted in 
the 92d Congress (H. Res. 5, Jan. 22, 1971, p. 144) following the 
enactment of an identical provision in section 119 of the Legislative 
Reorganization Act of 1970 (84 Stat. 1140).

  The penultimate sentence of the clause, relating to the procedure for 
submitting and the printing of amendments under the clause, was added in 
the 93d Congress (H. Res. 1387, Nov. 25, 1974, p. 37270). The last 
sentence, relating to the numbering of printed amendments, was added in 
the 104th Congress (sec. 217, H. Res. 6, Jan. 4, 1995, p. ----).

  The Speaker announced that amendments to be printed in the Record 
pursuant to this clause must be deposited in a separate box at the 
Rostrum or with the Official Reporters of Debates within 15 minutes 
following adjournment, and must bear the Member's original signature 
(Nov. 25, 1974, p. 37270). Printing an amendment in the Record under 
this clause permits debate notwithstanding a limitation of debate only 
if the amendment has been properly offered, and does not permit the 
offering of an amendment not otherwise in order under the rules (Apr. 
23, 1975, p. 11491); and the guaranteed five minutes may be claimed only 
if the offeror of the amendment is the Member who caused it to be 
printed under the rule (June 1, 1976, p. 16044; June 29, 1989, p. 13928; 
June 19, 1991, p.----). The guaranteed time applies to an amendment 
offered as a substitute for another amendment, rather than as a primary 
amendment, if offered in the precise form printed (June 26, 1979, p. 
16682), but where such a substitute amendment has not been printed in 
the Record it may not be debated unless time is yielded within the 
original 10 minutes (Dec. 10, 1987, p. 34710). Where a special order 
requires amendments to be printed in the Record to qualify during the 
consideration of a bill under the five-minute rule, but makes no 
designation concerning offerors, any printed amendment may be offered by 
any Member (Mar. 22, 1990, p. 5017); but only the Member causing the 
amendment to be printed is entitled to the time for debate guaranteed by 
this clause.


[[Page 685]]
may close the five-minute debate after it has begun (V, 5229, 5231), 
but rarely exercises this right. The motion to close debate, while not 
debatable (Apr. 23, 1975, p. 11534; June 5, 1975, p. 17187), may be 
amended (V, 5227; VIII, 2578). The closing of debate on the last section 
of a bill does not preclude debate on a substitute for the whole text 
(V, 5228). Where there is a time limitation on debate on a pending 
amendment in the nature of a substitute and all amendments thereto, but 
not on the underlying original text, debate on perfecting amendments to 
the original text proceeds under the five-minute rule absent another 
time limitation (Apr. 13, 1983, p. 8402). The motion may be ruled out 
when dilatory (V, 5734). Where five-minute debate has been limited to a 
certain number of minutes of debate without reference to a time certain, 
the time consumed by reading of amendments, quorum calls, points of 
order and votes is not taken from that remaining for debate (Oct. 3, 
1969, pp. 28459-60; Nov. 9, 1971, pp. 40060-61); but where debate has 
been limited to a time certain, such time comes out of the time 
remaining under the limitation and reduces the time which may be 
allocated to Members wishing to speak (May 6, 1970, p. 14452; Oct. 7, 
1976, pp. 26305-06). Where debate under the five-minute rule has been 
limited and equally divided, a Member allocated time may reserve a 
portion of his time or yield his time to another Member only by 
unanimous consent (Mar. 2, 1976, p. 4992; May 11, 1976, p. 13416; June 
14, 1977, p. 18833). A motion to limit debate on a pending amendment may 
neither allocate the time proposed to remain nor vary the order of 
recognition to close debate, though the Committee of the Whole may 
separately do either by unanimous consent (July 12, 1988, p. 17767). 
Under a limitation on debate the Chair may, in his discretion, either 
permit continued debate under the five-minute rule, or divide the 
remaining time among all those desiring to speak, or divide the 
remaining time between a proponent and an opponent to be yielded by them 
to other Members (May 25, 1982, p. 11672). Except as indicated in 
Sec. 762, supra, the manager of the bill, and not the proponent of the 
pending amendment, has the right to close debate on an amendment on 
which debate has been limited and allocated under the five-minute rule 
(July 16, 1981, p. 16043), even where he is also the proponent of a 
pending amendment to the amendment subject to the limitation (Mar. 16, 
1983, p. 5792). The Chair may also in his discretion give priority of 
recognition under a limitation to those Members seeking to offer 
amendments, over other Members standing at the time the limitation was 
agreed to (May 26, 1977, pp. 16950-52). Where the Committee of the Whole 
has limited debate time on a bill and all amendments thereto to a time 
certain several hours away, the Chair may in his discretion continue to 
proceed under the five-minute rule until he desires to allocate 
remaining time on possible amendments, and may then divide that time 
among proponents of anticipated amendments, and committee members 
opposing those amendments (July 16, 1981, p. 16044). The Chair has 
discretion to reallocate time originally allocated by unanimous consent 
in the Committee of the Whole (Mar. 16, 1995, p. ----). The Committee 

[[Page 686]]
of the Whole may, by motion, limit debate on a pending committee 
amendment in the nature of a substitute (considered as having been read 
as original text) and on all amendments thereto to a time certain, and 
may then, by subsequent unanimous consent requests or motions, 
separately limit debate on each perfecting amendment after it has been 
offered (Mar. 16, 1983, p. 5794). A time limitation imposed by the 
Committee of the Whole under this clause may be rescinded or modified 
only by unanimous consent (Sept. 17, 1975, p. 28904). While ordinarily 
the expiration of time for debate on a bill and all amendments thereto 
precludes debate on amendments offered thereafter (July 18, 1968, p. 
22110), debate on an amendment printed in the Record may nevertheless 
proceed for 10 minutes under this clause (Aug. 2, 1973, p. 27715). While 
the Committee of the Whole may limit debate on amendments, it may not 
restrict the offering of amendments in contravention of a special order 
adopted by the House (June 25, 1985, p. 17201).

  The motion to close debate is not in order until such debate has begun 
(V, 5225; VIII, 2567), which means after one speech of five minutes (V, 
5226; VIII, 2573). The motion to strike the enacting clause under clause 
7 of this rule is preferential to the motion to close debate (June 28, 
1995, p. ----; July 13, 1995, p. ----). Although any Member may move, or 
request unanimous consent, to limit debate under the five-minute rule, 
the manager of the bill has the prior right to recognition for such 
purpose (June 19, 1984, p. 17055). The House, as well as the Committee 
of the Whole, 




Sec. 875. The motion to strike out the enacting words of 
a bill.

  7. A  motion to strike out the enacting words of a bill shall have 
precedence of a motion to amend, and, if carried, shall be considered 
equivalent to its rejection. Whenever a bill is reported from a 
Committee of the Whole with an adverse recommendation and such 
recommendation is disagreed to by the House, the bill shall stand 
recommitted to the said committee without further action by the House, 
but before the question of concurrence is submitted it is in order to 
entertain a motion to refer the bill to any committee, with or without 
instructions, and when the same is again reported to the House it shall 
be referred to the Committee of the Whole without debate.



[[Page 687]]
merely of the fact that the motion was used most frequently in 
Committee of the Whole (V, 5326, 5332). The motion must be in writing 
and in the proper form (July 24, 1986, p. 17641; Aug. 15, 1986, p. 
22071; Sept. 12, 1986, p. 23178).
  The practice of rejecting a bill by striking out the enacting words 
dates from a time as early as 1812, but the first rule on the subject 
was not adopted until 1822. By amendments in 1860, 1870, and 1880 the 
rule has been brought into its present form (V, 5326). The rule before 
1880 applied in the House as well as in Committee of the Whole. In the 
revision of 1880 for the first time it was classified among the rules 
relating to the Committee of the Whole, but there is nothing to indicate 
that this change was intended to limit the scope of the motion. It was 
probably a recognition 



Sec. 876a. Practice as to use of the motion to 
strike out the enacting clause.

  The motion  may not be made until the first 
section of the bill has been read (V, 5327; VIII, 2619). Having 
precedence of a motion to amend, it may be offered while an amendment is 
pending (V, 5328-5331; VIII, 2622, 2624, 2627). The motion takes 
precedence over the motion to amend and therefore over the motion to 
rise and report at the end of the reading of a general appropriation 
bill for amendment under clause 2(d) of rule XXI (July 24, 1986, p. 
17641). The motion also takes precedence over a motion to limit debate 
on pending amendments (June 28, 1995, p. ----; July 13, 1995). Where a 
special order provides that a bill shall be open to amendment in 
Committee of the Whole, a motion to strike out the enacting words is in 
order (VII, 787); contra (IV, 3215), but after the stage of amendment 
has been passed the motion to strike out the enacting words is not in 
order (IV, 4782; VIII, 2368). Where a bill is being considered under a 
special order which permits only committee amendments and no amendments 
thereto, a motion that the committee rise and report with the 
recommendation that the enacting clause be stricken is not in order 
where no committee amendments are in fact offered (Apr. 16, 1970, p. 
12092).


  The motion is debatable as to the merits of the bill, but may not go 
beyond its provisions (V, 5336). The debate on the motion is, in 
Committee of the Whole, governed by the five-minute rule (V, 5333-5335; 
VIII, 2618, 2628-2631); only two five-minute speeches are in order (V, 
5335; VIII, 2629), and time may not be reserved (May 22, 1991, p. ----); 
thus where a Member recognized for five minutes in opposition to the 
motion yields back his time another Member may not claim the unused 
portion thereof (Mar. 3, 1988, p. 3241). Members of the committee 
managing the bill have priority in recognition for debate in opposition 
to the motion (May 5, 1988, p. 9955; June 26, 1991, p. ----). The motion 
is not debatable after the expiration of time for debate on the pending 
bill and all amendments thereto (July 9, 1965, p. 16280; July 19, 1973, 
p. 24961; June 19, 1975, p. 19785), but it is debatable where the 
limitation is only on an amendment in the nature of a substitute being 
read as an original bill for the purpose of amendment under a special 
order (June 20, 1975, p. 19966). For more concerning debate on the 
motion, see Deschler's Precedents, vol. 5, ch. 19, sec. 12.


[[Page 688]]
to a proposed amendment to the bill. But where a committee amendment in 
the nature of a substitute is being read for amendment as an original 
bill, pursuant to a special order, the adoption of amendments to the 
amendment in the nature of a substitute allows the re-offering of the 
motion (June 20, 1975, p. 19970). A point of order against the motion 
should be made before debate thereon has begun (V, 6902; VIII, 3442; May 
6, 1950, p. 6571), and when challenged the Member offering the motion 
must qualify as being opposed to the bill (Mar. 13, 1942, p. 2439; May 
6, 1950, p. 6571; June 14, 1979, p. 14995; Jan. 26, 1995, p. ----). When 
a bill is reported from the Committee of the Whole with the 
recommendation that the enacting words be stricken out, the motion to 
strike out is debatable (V, 5337-5340), but a motion to lay on the table 
is not in order (V, 5337). The previous question may be moved on the 
motion to concur without applying to further action on the bill (V, 
5342). When the House disagrees to the action of the committee in 
striking out the enacting words and does not refer it under the 
provisions of the rule, it goes back to the Committee of the Whole, 
where it becomes unfinished business (V, 5326, 5345, 5346; VIII, 2633). 
Notwithstanding that consideration of the pending bill was governed by a 
``modified closed rule'' permitting only specified amendments, pending 
the concurrence of the House with a recommendation of the Committee of 
the Whole that the enacting clause be stricken, the House could by 
instructions in a motion to refer under this clause direct the Committee 
of the Whole to consider additional germane amendments (Apr. 14, 1994, 
p. ----). When the enacting words of a bill are stricken out the bill is 
rejected (V, 5326); and when the enacting clause of a Senate measure is 
stricken, the bill is rejected (V, 5326), and the Senate is so informed 
(IV, 3423; VIII, 2638; June 20, 1946, p. 7211; Oct. 4, 1972, p. 33787).
  A second motion on the same legislative day to strike out the enacting 
clause is not entertained in the absence of any material modification of 
the bill (VIII, 2636), but the motion may be repeated on a subsequent 
legislative day without change in the bill (May 6, 1950, p. 6571). The 
rejection of a proposed amendment to the bill does not qualify as a 
modification of the bill (June 21, 1962, p. 11369), nor does the 
adoption of an amendment 


  When, on Calendar Wednesday, the House disagrees to the recommendation 
of the Committee of the Whole that the enacting words be stricken out, 
the House automatically resolves itself into Committee of the Whole for 
its further consideration (VII, 943). When the bill is thus again taken 
up in Committee of the Whole it is taken up as unfinished business and 
is open to amendment, and the motion to strike out the enacting words 
may be again offered (VIII, 2633).


[[Page 689]]
Whole to consider an amendment to a concurrent resolution on the 
budget, or any amendment to an amendment thereto, unless the concurrent 
resolution as amended by such amendment or amendments (a) would be 
mathematically consistent (except to the extent that the amendment 
involved is limited by the third sentence of this clause); and (b) would 
contain all the matter set forth in paragraphs (1) through (5) of 
section 301(a) of the Congressional Budget Act of 1974. It shall not be 
in order in the House or in a Committee of the Whole to consider an 
amendment to a concurrent resolution on the budget, or any amendment to 
an amendment thereto, which changes the amount of the appropriate level 
of the public debt set forth in the concurrent resolution as reported; 
except that the amendments to achieve mathematical consistency which are 
permitted under section 305(a)(6) of the Congressional Budget Act of 
1974 may include an amendment, offered by or at the direction of the 
Committee on the Budget, to adjust the amount of such level to reflect 
any changes made in the other figures contained in the resolution.



Sec. 876b. Reading concurrent resolution on budget 
for amendment.

  8. At the  conclusion of general debate in a Committee of the 
Whole on any concurrent resolution on the budget pursuant to section 
305(a) of the Congressional Budget Act of 1974, the concurrent 
resolution shall be considered as having been read for amendment. It 
shall not be in order in the House or in a Committee of the 




[[Page 690]]

  The first sentence of this clause was added to the rules on January 4, 
1977 (H. Res. 5, 95th Cong., pp. 53-70). The second sentence was adopted 
in the 96th Congress (H. Res. 5, Jan. 15, 1979, pp. 7-16). In the 96th 
Congress the second sentence was amended further and the third sentence 
added by Public Law 96-78 (93 Stat. 589) and was originally intended to 
apply to concurrent resolutions on the budget for fiscal years beginning 
on or after October 1, 1980 (fiscal 1980). However, in the 96th Congress 
the provisions of that public law amending the rules of the House were 
made applicable to the third concurrent resolution on the budget for 
fiscal year 1980 as well as the first concurrent resolution on the 
budget for fiscal year 1981 (H. Res. 642, Apr. 23, 1980, pp. 8789-90).




Sec. 877. Application of rules of the House to the 
Committee of the Whole.

  9. The  rules of proceeding in the House shall be 
observed in Committees of the Whole House so far as they may be 
applicable.


  This clause was adopted in 1789 (IV, 4737).



Sec. 877a. Modification of special 
orders.

  Unanimous consent  requests may not be entertained in the Committee of the Whole 
by the Chair if their effect is to materially modify procedures required 
by a special rule or order adopted by the House. For example, the Chair 
has refused to entertain unanimous consent requests: (1) to permit a 
perfecting amendment to be offered to the underlying bill where a 
special rule permitted its consideration only as a perfecting amendment 
to a committee amendment (Aug. 2, 1977, p. 26161); (2) to permit a 
substitute to be read by sections for amendment where the special rule 
did not so provide (Dec. 12, 1973, p. 41153); (3) to extend the time 
limitation for consideration of amendments beyond that set by a special 
order requiring the Chair to put the question on the pending amendments 
at the expiration of certain hours of consideration (Apr. 10, 1986, p. 
7079; Oct. 30, 1991, p. ----); (4) to modify the terms of a special 
order permitting consideration of certain amendments only en bloc, in 
order to permit separate consideration of one of the amendments (Sept. 
11, 1986, p. 22871); (5) to change the control (Oct. 9, 1986, p. 29984) 
or duration (Aug. 1, 1989, p. 17143; Mar. 12, 1991, p. ----; Mar. 17, 
1993, p. ----) of general debate specified by the House; (6) to reduce 
below 15 minutes the minimum time for recorded votes in the Committee of 
the Whole (June 18, 1987, p. 16764), or to postpone certain recorded 
votes where a special order authorized the Chair to postpone requests 
for recorded votes on amendments (June 4, 1992, p. ----); (7) to alter 
the terms of a special rule providing that an amendment not be subject 
to amendment, by permitting a perfecting amendment thereto or a 
subsequent amendment changing an amendment already adopted (Nov. 18, 
1987, p. 32643; July 26, 1989, p. 16411); (8) to permit consideration of 
an amendment out of the order specified in a special rule (May 25, 1988, 
p. 12275; Oct. 31, 1991, p. ----; Nov. 19, 1993, p. ----); (9) to vary 
the terms of a ``modified closed'' rule to permit consideration of an 
additional amendment (July 28, 1988, p. 19491); (10) to permit another 
to offer an amendment vested in a specified Member by the special order 
(May 1, 1990, p. ----).



[[Page 691]]
ments to be considered in the Committee of the Whole and to restrict 
``en blocking'' authority granted in a rule (June 21, 1989, p. 12744).
  By unanimous consent the House has altered the terms of a special 
order, for example: (1) to make an additional amendment in order in the 
Committee of the Whole under a ``modified closed'' rule and to authorize 
a supplemental report from the Committee on Rules in lieu of the 
original report referred to in the special order (Speaker Wright, Aug. 
11, 1988, p. 22105), or to change the specified order of amendments in 
Committee (Oct. 3, 1990, p. ----); and (2) to establish a preprinting 
requirement for certain amend

  Unanimous consent requests have been entertained in Committee of the 
Whole: (1) to permit the modification of a designated amendment made in 
order by a special rule, once offered (Sept. 1, 1976, p. 28877; Nov. 19, 
1993, p. ----); (2) to permit a page reference to be included in a 
designated amendment made in order as printed where the printed 
amendment did not include that reference (Apr. 1, 1976, p. 9091); (3) to 
permit a supporter of an amendment to claim debate time allocated by 
special order to an opponent, where no opponent seeks recognition (May 
23, 1990, p. 11988); (4) to shorten the time set by special order for 
debate on a particular amendment (Aug. 1, 1990, p. ----; Mar. 29, 1995, 
p. ----); (5) to lengthen such time under terms of control congruent 
with those set by the order of the House (May 11, 1988, p. 10495; May 
21, 1991, p. ----; Mar. 22, 1995, p. ----; June 27, 1995, p. ----); (6) 
to permit en bloc consideration of several amendments under a ``modified 
closed'' special order providing for the sequential consideration of 
designated separate amendments (Aug. 10, 1994, p. ----); or (7) to 
permit one of two committees controlling time for general debate 
pursuant to a special order to yield control of its time to the other 
(Aug. 18, 1994, p. ----).




  By unanimous consent the House may delegate to the Committee of the 
Whole authority to entertain unanimous consent requests to change 
procedures contained in an adopted special order (Aug. 11, 1986, p. 
20633).