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sion from disagree

a pending amendment, or an amendment thereto, and cause the question to be put thereon; and this shall not preclude any further amendment or debate upon the bill."-Rule 132.

AMENDMENTS BETWEEN THE TWO HOUSES.

When either house, e. g., the House of Representatives, ment to adherence. Send a bill to the other, the other may pass it with amendments. The regular progression in this case is: that the House disagree to the amendment; the Senate insist on it; the House insist on their disagreement; the Senate adhere to their amendment; the House adhere to their disagreement. (See Manual, pp. 125, 126.)

Effect of adherence by both houses.

Either house may recede.

Motion to recede

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"After each house shall have adhered to their disagreement, a bill or resolution shall be lost."-Joint Rule 15.

"Either house may recede from its amendment and agree to the bill; or recede from their disagreement to the amendment, and agree to the same absolutely, or with an amendment.”—Manual, p. 126. And a motion to takes precedence recede takes precedence of a motion to insist.-Journals, 1, 23, p. 229; 1, 29, p. 696. "But the House cannot recede on its amendment from or insist on its own amendment with an amendment. with amendment, They may modify an amendment from the other house's house by engrafting an amendment on it."-Manual, p.

of motion to insist.

House cannot recede from or insist

but may amend

other amendment.

Motion to amend an amendment of ther house.

amend the other's

amendment.

126.

"A motion to amend an amendment from the other house takes precedence of a motion to agree or disagree. One house may A bill originating in one house is passed by the other amendment to its with an amendment. The originating house agrees to their amendment with an amendment. The other may agree to their amendment with an amendment, that being only in the second and not the third degree; for, as to the amending house, the first amendment with which they passed the bill is a part of its text; it is the only text they have agreed to."-Ibid., p. 123.

Two conferences at least before adherence.

"In the ordinary parliamentary course there are two free conferences, at least, before an adherence."-Manual, p. 126; Journals, 1, 34, p. 943; 1, 35, p. 1136. Although adhere in first in either house is free to pass over the term of insisting and to adhere in the first instance; but it is not respectful to the other.-Manual, p. 126. A motion to insist, how

Put House mey

stance, but motion to insist takes precedence.

by one house.

ever, takes precedence of a motion to adhere.-Journal, 1, 34, pp. 1516, 1518. (See CONFERENCE COMMITTEES.) After one house has adhered, the other may recede- After adherence Journals, 1, 1, pp. 113, 114; 1, 2, p. 152; 1, 8, pp. 671, 673 -or ask a conference, which may be agreed to by the adhering house.-Journals, 1, 1, pp. 156, 157; 1, 3, pp. 281, 283; 1, 35, pp. 604, 615, 620.-(See ADHERE, MOTION TO.)

APPEAL.

Question of order arising out of to decided first. tions, their rele

other question, to

be

Questions of order relative to mo

vancy. &c., sub

"A question of order arising out of any other question must be decided before that question.”—Manual, p. 105. Questions of order decided by the Speaker shall be "subject to an appeal to the House by any two members; on which appeal no member shall speak more than once, jeto unless by leave of the House."-Rule 2. [The questions of Debate on. order herein referred to relate to motions or propositions, their applicability or relevancy, &c.-Note to Rule 2.] But "all incidental questions of order arising after a motion is made for the previous question, and pending batable. such motion, shall be decided, whether on appeal or otherwise, without debate."-Rule 133. [So, too, under the practice, all questions of order which may arise, pending a question which is not debatable, must be decided without debate.] And "all questions relating to the priority of business to be acted on shall be decided without debate."-Rule 66.

When not de

ber transgressing rules in speaking or indecorum.

"If any member, in speaking or otherwise, transgress In case of memthe rules of the House, the Speaker shall, or any member may, call to order; in which case the member so called " to order shall immediately sit down, unless permitted to explain; and the House shall, if appealed to, decide on the case, but without debate.”—Rule 61. [The call to order herein referred to has reference only to "transgressions of the rules in speaking," or to indecorum of any kind.] (See ORDER.)

Not debatable.

point of order du

"If any difficulty arises in point of order during the No appeal on division, the Speaker is to decide peremptorily, subject ring a division. to the future censure of the House, if irregular.”—Man

ual, p. 122.

An appeal may be laid on the table-Journal, 1, 26, p. May be laid on 529—and being laid on the table does not carry with it table, and its ef

fect.

Where too late

to raise question of order.

Question just decided ou, cannot

be renewed.

Where too late

on appeal.

the whole subject.-Ibid., p. 530. [Of late years this motion is almost invariably made in case of an appeal. and if carried, its effect is considered equivalent to a vote sustaining the decision of the Chair.]

It is too late to renew a question of order on the admissibility of a proposition which has been overruled on the preceding day, where debate has been allowed to progress on such proposition.-Journal, 1, 30, p. 989. And it is also too late to raise a question of order on a motion entertained without objection on a former day, and entered on the journal.—Ibid., 2, 30, p. 382; 1, 38, p. 538.

A question of order just decided on appeal cannot be renewed, even upon the suggestion of additional rea sons.—Ibid., 1, 32, p. 935.

Where an appeal has been decided, and by virtue of to reconsider vote such decision a bill taken up and passed, it is too late to move a reconsideration of the vote on the appeal.—Ibid., 1, 31, pp. 860, 861.

Pending the elec

tion of Speaker,

Pending the election of a Speaker, the Clerk shall decide decide all questions of order that may arise, subject to questions of order. appeal to the House.-Rule 146.

Clerk to

Not in order An appeal is not in order while another appeal is pending.-Cong. Globe, 1, 27, p. 154; 2, 29, p. 290.

while another is

pending.

How questions

on, stated.

Questions of or

der to be noted and

[The form of stating the question on an appeal is: "Shall the decision of the Chair stand as the judgment of the House?"]

"All questions of order shall be noted by the Clerk, put at end of jour. With the decision, and put together at the end of the journal of every session."-Rule 15.

nal.

General, when to be reported.

APPROPRIATION BILLS.

"It shall be the duty of the Committee on Appropriations, within thirty days after their appointment, at every session of Congress, commencing on the first Monday of December, to report the general appropriation bills for legislative, executive, and judicial expenses; for sundry civil expenses; for consular and diplomatic expenses; for the army; for the navy; for the expenses of the Indian department; for the payment of invalid and other pensions; for the support of the Military Academy; for fortifications; for the service of the Post

reported at any

propriations

in,

Appropriations

treaties not to be

for carrying out

included in.

Office Department, and for mail transportation by ocean steamers; or, in failure thereof, the reasons of such failure. And said committee shall have leave to report General. may be said bills (for reference only) at any time. In all time. cases where appropriations cannot be made specific in Amount of ap amount the maximum to be expended shall be stated, be stated. and each appropriation bill when reported from the committee shall, in the concluding clause, state the sum total of all the items contained in said bill."-Rule 77. "In preparing bills of appropriation for other objects, the Committee on Appropriations shall not include appropriations for carrying into effect treaties made by the United States; and when an appropriation bill shall be referred to them for their consideration which contains appropriations for carrying a treaty into effect, and for other objects, they shall propose such amendments as shall prevent appropriations for carrying a treaty into effect being included in the same bill with appropriations for other objects."-Rule 76. But where a general appropriation bill containing an But where comitem for carrying out a treaty has been committed by the House, it cannot be ruled out of order by the Committee of the Whole.-Cong. Globe, 2, 31, pp. 356, 357.

mitted cannot be

ruled out of order.

"No appropriation shall be reported in such general Amendment to appropriation bills, or be in order as an amendment general. thereto, for any expenditure not previously authorized by law, unless in continuation of appropriations for such public works and objects as are already in progress, and for the contingencies for carrying on the several departments of the government."-Rule 120. [It has been decided that under this rule it is not in order to propose an amendment to a general appropriation bill, which changes an existing law.-Journal, 1, 38, pp. 598, 599. But it was also decided that the latter branch of the rule not only permitted amendments increasing salaries, but was framed for that very purpose.-See Cong. Globe, vol. 54, pp. 306, 325-also, Cong. Globe, vol. 6, p. 224.]

[This rule is rigidly enforced, so far as relates to amendments offered in the House or in committee, but it not unfrequently happens that bills are reported which are in conflict with it; and as they are usually received by

Committee of the
Whole.

the House and committed without being read in extenso, the conflict is not discovered until they are considered in committee, when it is too late to make the point.]

All proceedings "All proceedings touching appropriations of money touching, to be first discussed in shall be first discussed in a Committee of the Whole House."-Rule 112. [The construction given to this rule is, that all bills, or amendments thereto, containing an appropriation of money must be committed to a Committee of the Whole before being considered in the House; hence, if such a bill, on its engrossment, or third reading, or such an amendment, be pending before the House, and no motion is made to commit or postpone, the House must pass from its consideration, and the bill go to the Speaker's table. But House bills with Senate amend ments reducing the amount of, or restricting, appropria tions, need not be committed.]

Bills which need not be committed

as.

But a bill directing the disbursement of money already appropriated-Journal, 1, 24, p. 254-or directing payment of money hereafter to be appropriated-Journal, 1, 31, p. 1216; 1, 38, p. 538-need not be committed. Neither is it necessary that a bill containing an appropriation of lands should be committed.-Journal, 1, 30, p. 526. And When point of when the rules have been suspended for the purpose of enabling the report of a measure to be made, and also for its consideration, a point of order that it contains an appropriation cannot be well taken.-Journal, 1, 34, pp. 1172, 1173.

order on, cannot be well taken.

Preference given to general, in the House.

"General appropriation bills shall be in order in preference to any other bills of a public nature, unless otherwise ordered by a majority of the House. And the made special order House may, at any time, by a vote of a majority of the members present, make any of the general appropriation bills a special order."-Rule 119.

General, may be

at any time.

to general, in Committee of

Whole.

Preference given And in Committee of the Whole House on the state the of the Union, general appropriation bills, and, in time of war, bills for raising men and money, and bills concerning a treaty of peace, shall be preferred to all other bills, at the discretion of the committee; and when demanded by any member, the question (of consideration) shall first be put in regard to them."-Rule 114. [Existing special orders, however, (being made under a suspension of the rules,) take precedence of all other business.]

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