    [Constitution, Jefferson's Manual, and the Rules of the House of Representatives, 117th Congress]
    [117th Congress]
    [House Document 116-177]
    [Jeffersons Manual of ParliamentaryPractice]
    [Pages 161-170]
    [From the U.S. Government Publishing Office, www.gpo.gov]

                        sec. xii--committee of the whole

    Sec. 326. Parliamentary usage as to Committee of the
    Whole.

      The  speech, messages, and other matters of great concernment are
    usually referred to a Committee of the Whole House (6 Grey, 311), where
    general principles are digested in the form of resolutions, which are
    debated and amended till they get into a shape which meets the
    approbation of a majority. These being reported and confirmed by the
    House are then referred to one or more select committees, according as
    the subject divides itself into one or more bills. Scob., 36, 44.
    Propositions for any charge on the people are especially to be first
    made in a Committee of the Whole. 3 Hats., 127. The sense of the whole
    is better taken in committee, because in all committees everyone speaks
    as often as he pleases. Scob., 49. * * *

    [[Page 162]]

    tained in the State of the Union Message are referred by the Speaker to
    the various committees having jurisdiction over the subject matter
    therein.
      This provision is largely obsolete, the House having by its rules and
    practice provided specifically for procedure in the Committee of the
    Whole, and having also by its rules for the order of business left no
    privileged status for motions to go into Committee on matters not
    already referred there. The Committee no longer originates resolutions
    or bills, but receives such as have been formulated by standing or
    select committees and referred to it; and when it reports, the House
    usually acts at once on the report without reference to select or other
    committees (IV, 4705). The practice of referring annual messages of the
    President to the Committee, to be there considered and reported with
    recommendations for the reference of various portions to the proper
    standing or select committees (V, 6621, 6622), was discontinued in the
    64th Congress (VIII, 3350). The current practice is to refer the annual
    message to the Committee of the Whole House on the state of the Union
    and order it printed (Jan. 14, 1969, p. 651). Executive communications
    submitted to implement the proposals con

    Sec. 327. Selection of Chair of Committee of the
    Whole.

      * * *  They generally acquiesce in the chairman named by the Speaker;
    but, as well as all other committees, have a right to elect one, some
    member, by consent, putting the question, Scob., 36; 3 Grey, 301. * * *

      The House (by clause 1 of rule XVIII) gives the authority to appoint
    the chair of the Committee of the Whole to the Speaker (IV, 4704).

    Sec. 328. Form of going into Committee of the
    Whole.

      * * *  The form of going from the House into committee, is for the
    Speaker, on motion, to put the question that the House do now resolve
    itself into a Committee of the Whole to take into consideration such a
    matter, naming it. If determined in the affirmative, he leaves the chair
    and takes a seat elsewhere, as any other Member; and the person
    appointed chairman seats himself at the Clerk's table. Scob., 36. * * *

      This is the form in the House, except that the chair of the Committee
    of the Whole sits in the Speaker's chair. Clause 1(b) of rule XVIII
    (former rule XXIII) was adopted to authorize the Speaker, and it is the
    modern practice, when no other business is pending, to declare the House
    resolved into the Committee to consider a measure at any time after the
    House has adopted a special order of business providing for
    consideration of such measure (and not require a motion), unless the
    resolution specifies otherwise (H. Res. 5, Jan. 3, 1983, p. 34).

    [[Page 163]]

    port than to inform the House of the cause of their dissolution. * * *

    Sec. 329. Quorum in Committee of the Whole.

      * * *  Their
    quorum is the same as that of the House; and if a defect happens, the
    chairman, on a motion and question, rises, the Speaker resumes the chair
    and the chairman can make no other re

      Until 1890 a quorum of the Committee of the Whole was the same as the
    quorum of the House; but in 1890 the rule (formerly clause 2 of rule
    XXIII, current clause 6 of rule XVIII) fixed it at one hundred (IV,
    2966). Clause 6 of rule XVIII provides the procedure that is followed in
    the Committee in case of failure of a quorum.

    Sec. 330. Rising of Committee for reception of
    messages.

      * * *  If a message is announced during a committee, the Speaker
    takes the chair and receives it, because the committee can not. 2 Hats.,
    125, 126.

      In the House, the Committee rises informally to receive a message, or
    to enable the Speaker to sign and lay before the House an enrolled bill,
    at the direction of the Chair without a formal motion from the floor
    (IV, 4786, footnote; Jan. 28, 1980, p. 888; Feb. 8, 1995, p. 4112); but
    at this rising the House may not have the message read or transact other
    business except by unanimous consent (IV, 4787-4791). However, it is the
    general custom for the Speaker to decline to entertain a unanimous-
    consent request during an informal rising of the Committee (IV, 4789,
    Apr. 6, 2000, p. 4778).

    [[Page 164]]

    had happened in the grand committee, which was done. 3 Grey, 128.

    Sec. 331. Quarrels in Committee of the Whole, and duty of
    the Speaker in relation thereto.

      In  a Committee of the Whole, the tellers
    on a division differing as to numbers, great heats and confusion arose,
    and danger of a decision by the sword. The Speaker took the chair, the
    mace was forcibly laid on the table; whereupon the Members retiring to
    their places, the Speaker told the House ``he has taken the chair
    without an order to bring the House into order.'' Some excepted against
    it; but it was generally approved as the only expedient to suppress the
    disorder. And every Member was required, standing up in his place, to
    engage that he would proceed no further in consequence of what

      In the House the Speaker has on several occasions taken the chair
    ``without an order to bring the House into order'' (II, 1648-1653), but
    that being accomplished the Speaker may yield to the chair that the
    committee may rise in due form (II, 1349). In one instance, the Chair,
    having been defied and insulted by a Member, left the chair; and, on the
    chair being taken by the Speaker, he reported the facts to the House
    (II, 1653). In several cases Members who have quarreled have made
    explanation and reconciled their difficulties (II, 1651), or have been
    compelled by the House to apologize ``for violating its privilege and
    offending its dignity'' (II, 1648, 1650).

    Sec. 332. Effect of breaking up of Committee of the Whole by
    disorder.

      A  Committee of the Whole being broken up in disorder, and the
    chair resumed by the Speaker without an order, the House was adjourned.
    The next day the committee was considered as thereby dissolved, and the
    subject again before the House; and it was decided in the House, without
    returning into committee. 3 Grey, 130.

      This provision is obsolete, because in the practice of the House there
    is but one Committee of the Whole, which is in its nature a standing
    committee with calendars of business. It is never dissolved, and bills
    remain on its calendar until reported in the regular manner after
    consideration (IV, 4705). After restoring order, the Speaker usually
    leaves the chair, thus permitting the committee later to rise in due
    form (II, 1349).

    [[Page 165]]

    put on their having leave, and on the time the House will again resolve
    itself into a committee. Scob., 38. But if they have gone through the
    matter <> referred to them, a member moves that the committee may
    rise, and the chairman report their proceedings to the House; which
    being resolved, the chairman rises, the Speaker resumes the chair, the
    chairman informs him that the committee have gone through the business
    referred to them, and that he is ready to make report when the House
    shall think proper to receive it. If the House have time to receive it,
    there is usually a cry of ``now, now,'' whereupon he makes the report;
    but if it be late, the cry is ``to-morrow, to-morrow,'' or ``Monday,''
    etc., or a motion is made to that effect, and a question put that it be
    received to-morrow, &c. Scob., 38.

    Sec. 333. Motions for previous question and to adjourn not
    used in Committee of the Whole.

      No  previous question can be put in a
    committee; nor can this committee adjourn as others may; but if their
    business is unfinished, they rise, on a question, the House is resumed,
    and the chairman reports that the Committee of the Whole have, according
    to order, had under their consideration such a matter, and have made
    progress therein; but not having had time to go through the same, have
    directed him to ask leave to sit again. Whereupon a question is

    [[Page 166]]

    after the Committee rises (May 19, 2016, p. _). For a further discussion
    of the motion to rise, see Sec. 983, infra.
      In the practice of the House the previous question and motion to
    adjourn are not admitted in the Committee of the Whole (e.g., June 12,
    2019, p. _); but the rules (clause 8 of rule XVIII) provide for closing
    five-minute debate by motion. When the Committee rises without
    concluding a matter the Chair reports that it ``has come to no
    resolution thereon''; but leave to sit again is not asked in the modern
    practice. The permission of the House is not asked when the Chair
    reports a matter concluded in Committee. The report is made and received
    as a matter of course, and is thereupon before the House for action.
    When the House has vested control of general debate in certain Members,
    their control may not be abrogated during general debate by another
    Member moving to rise, unless they yield for that purpose (May 25, 1967,
    p. 14121; June 10, 1999, p. 12471). A Member yielded time in general
    debate may not yield to another for such motion (Feb. 22, 1950, p. 2178;
    May 17, 2000, p. 8200). The motion is privileged during debate under the
    five-minute rule, and may be offered during debate on a pending
    amendment, except where a Member has the floor (Aug. 13, 1986, p. 21215;
    Mar. 22, 1995, p. 8770). The motion may not include restrictions on the
    amendment process or limitations on future debate on amendments (June 6,
    1990, p. 13234), is not debatable (May 17, 2000, p. 8203), may be
    withdrawn only by unanimous consent (June 12, 2019, p. _), and a demand
    for a recorded vote thereon is untimely

    Sec. 335. Duties of Speaker and House as to reception of
    reports of Committee of the Whole.

      The  Speaker recognizes only reports
    from the Committee of the Whole made by the chair thereof (V, 6987), and
    a matter alleged to have arisen therein but not reported may not be
    brought to the attention of the House (VIII, 2429, 2430) even on the
    claim that a question of privilege is involved (IV, 4912; V, 6987), but
    the Speaker has responded to a parliamentary inquiry regarding events
    occurring during an earlier vote in the Committee of the Whole by
    advising on a general principle of the operation of the electronic
    voting system (May 19, 2016, p. _). In one instance, however, the
    Committee reported with a bill a resolution relating to an alleged
    breach of privilege (V, 6986). When a bill is reported the Speaker must
    assume that it has passed through all the stages necessary for the
    report (IV, 4916). When the Committee reported not only what it had done
    but by whom it had been prevented from doing other things, the Speaker
    held that the House might not amend the report, which stood (IV, 4909).
    When an amendment is reported by the Committee it may not be withdrawn,
    and a question as to its validity is not considered by the Speaker (IV,
    4900). When a Committee, directed by order of the House to consider
    certain bills, reported also certain other bills, the Speaker held that
    so much of the report as related to the latter bills could be received
    only by unanimous consent (IV, 4911). When a report is ruled out as in
    excess of the Committee's power, the accompanying bill stands
    recommitted (IV, 4784, 4907). A former rule prohibited a Committee's
    report from being received in the absence of a quorum (VI, 666; clause 7
    of rule XX).

    [[Page 167]]

    on a rule (IV, 4904), requires amendments to be reported from the
    Committee in their perfected forms, and this holds good even in the case
    of an amendment in the nature of a substitute, which may have been
    amended freely (IV, 4900-4903). If the Committee amends a paragraph and
    subsequently strikes the paragraph as amended, the first amendment
    fails, and is not reported to the House or voted on (IV, 4898; V, 6169;
    VIII, 2421, 2426), and when the Committee adopts two amendments that are
    subsequently deleted by an amendment striking and inserting new text,
    only the latter amendment is reported to the House (June 20, 1967, p.
    16497). Where two amendments proposing inconsistent motions to strike
    and insert a pending section are considered as separate first degree
    amendments (not one as a substitute for the other) before either is
    finally disposed of under a special procedure permitting the Chair to
    postpone requests for a recorded vote, the Chair's order of voting on
    the matter as unfinished business determines which amendment (if both
    were adopted) would be reported to the House (Aug. 6, 1998, pp. 19098-
    107). Normally, if the Committee perfects a bill by adopting certain
    amendments and then adopts an amendment striking all after section one
    of the bill and inserting a new text, only the bill, as amended by the
    motion to strike and insert, is reported to the House; but when the bill
    is being considered under a special rule permitting a separate vote in
    the House on any of the amendments adopted in the Committee to the bill
    or to the committee substitute, all amendments adopted in the Committee
    are reported to the House regardless of their consistency (May 26, 1960,
    pp. 11302-04). Where a separate vote is demanded in this type of
    situation in the House only on an amendment striking a section of a
    committee substitute, but not on perfecting amendments that have been
    previously adopted in the Committee of the Whole to that section,
    rejection in the House of the motion to strike the section results in a
    vote on the committee substitute in its original form and not as
    perfected, because the perfecting amendments have been displaced in the
    Committee of the Whole and have not been revived on a separate vote in
    the House (Speaker O'Neill, Oct. 13, 1977, pp. 33622-24). But if the
    Committee of the Whole reports a bill to the House with an adopted
    amendment in the nature of a substitute and the special order of
    business in question does not provide for separate House votes on
    amendments thereto, a separate vote may not be demanded on an amendment
    to such amendment, because only one amendment in its perfected form has
    been reported back to the House (Nov. 17, 1983, p. 33463).

    Sec. 336. Amendments in Committee of the
    Whole.

      The Committee of the  Whole, like any other committee, may amend a proposition either
    by an ordinary amendment or by a substitute amendment (IV, 4899), but
    these amendments must be reported to the House for action. Amendments
    rejected by the Committee are not reported (IV, 4877). Ordinarily all
    amendments must be disposed of before the Committee may report (IV,
    4752-4758); but sometimes a special order of business requires a report
    at a specified time, in which case pending amendments are reported (IV,
    3225-3228) or not (IV, 4910) as the terms of the order may direct. In
    the 98th Congress, clause 2 of rule XXI was amended to give precedence
    to the motion that the Committee rise and report a general appropriation
    bill at the conclusion of its reading for amendment and before or
    between consideration of amendments proposing certain limitations or
    retrenchments (H. Res. 5, Jan. 3, 1983, p. 34). The 104th Congress
    further amended clause 2 to permit only the Majority Leader or a
    designee to offer that motion (sec. 215(a), H. Res. 6, Jan. 4, 1995, p.
    468). The 105th Congress elevated the Majority Leader's preferential
    motion in clause 2 to take precedence of any motion to amend at that
    stage (H. Res. 5, Jan. 7, 1997, p. 121). The practice of the House,
    based originally

    [[Page 168]]

    other (IV, 4905); and an entire and distinct amendment may not be
    divided, but must be voted on by the House as a whole (IV, 4883-4892;
    VIII, 2426). It is a frequent practice for the House by unanimous
    consent to act at once on all the amendments to a bill reported from the
    Committee, but it is the right of any Member to demand a separate vote
    on any amendment (IV, 4893, 4894; VIII, 2419) unless a special rule
    mandates that sundry amendments be put en gros (June 24, 2009, p.
    16147). Where a special rule permits en bloc consideration of certain
    amendments in the Committee, those amendments if reported back to the
    House may also be considered en bloc for a separate vote in the House on
    demand of any Member (Speaker O'Neill, Sept. 7, 1978, p. 28425). A
    Member may demand a separate vote in the House on an amendment to a
    committee amendment in the nature of a substitute adopted in the
    Committee of the Whole where the bill is being considered under a
    special rule permitting separate votes in the House on any of the
    amendments adopted in the Committee of the Whole to the bill or
    committee amendment (Sept. 30, 1971, p. 34337), but where a special rule
    ``self-executes'' an amendment as a modification of an amendment in the
    nature of a substitute to be considered as an original bill, that
    modification is not separately voted on upon demand in the House
    (Speaker Foley, Feb. 3, 1993, p. 2043). A Member may withdraw a demand
    for a separate vote in the House on an amendment reported from the
    Committee before the Speaker's putting the question thereon, and
    unanimous consent is not required (May 28, 1987, p. 14030). When demand
    is made for separate votes in the House on several amendments adopted in
    the Committee, the amendments are voted on in the House in the order in
    which they appear in the bill (July 24, 1968, pp. 23093-95; May 28,
    1987, p. 14030; June 11, 1997, p. 10654), except when amendments have
    been considered under a special rule prescribing the order for their
    consideration where the bill is considered as read, in which case they
    are voted on upon demand in the order in which considered in the
    Committee (Mar. 11, 1993, p. 4733; Mar. 25, 1993, pp. 6358, 6359). For
    automatic reconsideration in the House of amendments if the votes of
    Delegates and the Resident Commissioner are decisive, see Sec.  985,
    infra.

    Sec. 337. Committee of the Whole amendments in the
    House.

      All  amendments to a bill reported from the Committee of the Whole
    stand on an equal footing and must be voted on by the House (IV, 4871)
    in the order in which they are reported, although they may be
    inconsistent, one with another (IV, 4881, 4882), and are subject to
    amendment in the House unless the previous question is ordered (VIII,
    2419). Two amendments being reported as distinct were considered
    independently, although apparently one was a proviso attaching to the

    [[Page 169]]

    Committee is treated like any other amendment (V, 5341), and if the
    House rejects the substitute the original bill without amendment is
    before the House (VIII, 2426).
      Depending on the will of the House as expressed on the question of
    ordering the previous question (IV, 4895; V, 5794; VIII, 2419), when a
    bill is reported with amendments from the Committee of the Whole, it is
    in order to submit additional amendments after disposition of the
    Committee amendments (IV, 4872-4876). However, in modern practice the
    opportunity to submit amendments is normally foreclosed by the ordering
    of the previous question under a special rule. The fact that a
    proposition has been rejected by the Committee does not prevent it from
    being offered as an amendment when the subject comes up in the House
    (IV, 4878-4880; VIII, 2700). A substitute amendment may be offered to a
    bill reported from the Committee, and then the previous question may be
    ordered on the substitute, on all other amendments, and on the bill to
    final passage (V, 5472). An amendment in the nature of a substitute
    reported from the

    Sec. 338. Bills from Committee of the Whole in the
    House.

      Where  a series of bills are reported from Committee of the Whole, the
    House considers them in the order in which they are reported (IV, 4869,
    4870; VIII, 2417). A proposition reported for action has precedence over
    an independent resolution on the same subject offered by a Member from
    the floor (V, 6986), and where a bill and a resolution relating to an
    alleged breach of privilege were reported together the question was put
    first on the bill (V, 6986). A bill read in full and considered in the
    Committee (IV, 3409, 3410), or presumed to have been so read (IV, 4916),
    is not read in full again in the House when reported and acted on. The
    chair of the Committee of the Whole who reports a bill does not become
    entitled to prior recognition for debate in the House (II, 1453); but on
    an adverse report an opponent is recognized to offer a motion for
    disposition of the bill (IV, 4897; VIII, 2430), or for debate (VII,
    2629). The recommendation of the Committee being before the House, the
    motion to carry out the recommendation is usually considered as pending
    without being offered from the floor (IV, 4896), but when a bill was
    reported with a recommendation that it lie on the table, a question was
    raised as to whether or not this motion, which prevents debate, should
    be considered as pending (IV, 4897). The House considers an amendment
    reported from the Committee to the preamble of a Senate joint resolution
    following disposition of amendments to the text and pending third
    reading (May 25, 1993, pp. 11036, 11037).

    Sec. 339. Discharge of the Committee of the Whole.

      A  motion
    to discharge the Committee of the Whole from the consideration of a
    matter committed to it is not privileged as against a demand for the
    regular order (IV, 4917). When the Committee is discharged from
    consideration of a bill the House, in lieu of the report of the chair,
    accepts the minutes of the Clerk as evidence of amendments agreed to
    (IV, 4922).

    Sec. 340. Application of House rules in Committee of the
    Whole.

        In other things the rules or proceedings are to be the same as
    in the House. Scob., 39.

    [[Page 170]]

      The House provides by rule (clause 11 of rule XVIII) that the rules of
    proceeding in the House shall apply in the Committee of the Whole so far
    as they may be applicable.