A MANUAL OF PARLIAMENTARY PRACTICE.docx
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A MANUAL OF PARLIAMENTARY PRACTICE.docx
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AMANUALOFPARLIAMENTARYPRACTICE
AMANUALOFPARLIAMENTARYPRACTICE:
fortheUseoftheSenateoftheUnitedStates.
BYTHOMASJEFFERSON.
1812
SEC.
1.Rules,importanceof.
2.Legislature.
3.Privilege.
4.Elections.
5.Qualifications.
6.Quorum.
7.CalloftheHouse.
8.Absence.
9.Speaker.
10.Address.
11.Committees.
12.Committeeofthewhole.
13.ExaminationbeforeCommittees,&c.
14.Arrangementofbusiness.
15.Order.
16.Respectingpapers.
17.Indebate.
18.OrdersoftheHouse.
19.Petitions.
20.Motions.
21.Resolutions.
22.Bills,Readings.
23.Leavetobringin.
24.Firstreading.
25.Secondreading.
26.Commitment.
27.ReportofCommittee.
28.Recommitment.
29.Reporttakenup.
30.QuasiCommittee.
31.SecondreadingintheHouse.
32.Readingpapers.
33.Privilegedquestions.
34.Previousquestion.
35.Amendments.
36.Divisionofquestion.
37.Co-existingquestions.
38.Bills,Equivalentquestions.
39.TheQuestion.
40.Thirdreading.
41.DivisionoftheHouse.
42.Title.
43.Reconsideration.
44.BillssenttotheotherHouse.
45.AmendmentsbetweentheHouses.
46.Conferences.
47.Messages.
48.Assent.
49.Journals.
50.Adjournment.
51.Session.
52.Treaties.
53.Impeachment.
Preface
THEConstitutionoftheUnitedStatesestablishingalegislaturefortheUnion,undercertainforms,authoriseseachbranchofit"todeterminetherulesofitsownproceedings."TheSenatehaveaccordinglyformedsomerulesforitsowngovernment:
butthesegoingonlytofewcases,theyhavereferredtothedecisionoftheirPresident,withoutdebateandwithoutappeal,allquestionsoforderarisingeitherundertheirownrules,orwheretheyhaveprovidednone.ThisplacesunderthediscretionofthePresidentaveryextensivefieldofdecision,andonewhich,irregularlyexercised,wouldhaveapowerfuleffectontheproceedingsanddeterminationsoftheHouse.ThePresidentmustfeelweightilyandseriouslythisconfidenceinhisdiscretion;andthenecessityofrecurring,foritsgovernment,tosomeknownsystemofrules,thathemayneitherleavehimselffreetoindulgecapriceorpassion,noropentotheimputationofthem.Buttowhatsystemofrulesishetorecur,assupplementarytothoseoftheSenate?
Tothistherecanbebutoneanswer;tothesystemofregulationsadoptedforthegovernmentofsomeoneoftheParliamentarybodieswithinthesestates,orofthatwhichhasservedasaprototypetomostofthem.Thislastisthemodelwhichwehaveallstudied,whilewearelittleacquaintedwiththemodificationsofitinourseveralstates.Itisdepositedtooinpublicationspossessedbymanyandopentoall.Itsrulesareprobablyaswiselyconstructedforgoverningthedebatesofadeliberativebody,andobtainingitstruesense,asanywhichcanbecomeknowntous;andtheacquiescenceoftheSenate,hitherto,underthereferencestothem,hasgiventhemthesanctionoftheirapprobation.
ConsideringthereforethelawofproceedingsintheSenateascomposedofthepreceptsoftheConstitution,theregulationsoftheSenate,and,wherethesearesilent,oftherulesofParliament,Ihavehereendeavoredtocollectanddigestsomuchoftheseasiscalledforinordinarypractice,collatingtheParliamentarywiththeSenatorialrules,bothwheretheyagreeandwheretheyvary.Ihavedonethis,aswelltohavethemathandformyowngovernment,astodepositwiththeSenatethestandardbywhichIjudgeandamwillingtobejudged.Icouldnotdoubtthenecessityofquotingthesourcesofmyinformation;amongwhichMr.Hatsell'smostvaluablebookispreeminent;butashehasonlytreatedsomegeneralheads,Ihavebeenobligedtorecurtootherauthoritiesinsupportofanumberofcommonrulesofpracticetowhichhisplandidnotdescend.Sometimeseachauthoritycitedsupportsthewholepassage.Sometimesitrestsonalltakentogether.Sometimestheauthoritygoesonlytoapartofthetext,theresiduebeinginferredfromknownrulesandprinciples.Forsomeofthemostfamiliarforms,nowrittenauthorityis,orcanbequoted;nowriterhavingsupposeditnecessarytorepeatwhatallwerepresumedtoknow.Thestatementofthesemustrestontheirnotoriety.
IamawarethatauthoritiescanoftenbeproducedinoppositiontotheruleswhichIlaydownasParliamentary.Anattentiontodateswillgenerallyremovetheirweight.TheproceedingsofParliamentinantienttimes,andforalongwhile,werecrude,multiformandembarrassing.Theyhavebeen,however,constantlyadvancingtowardsuniformityandaccuracy;andhavenowattainedadegreeofaptitudetotheirobject,beyondwhich,littleistobedesiredorexpected.
YetIamfarfromthepresumptionofbelievingthatImaynothavemistakentheParliamentarypracticeinsomecases;andespeciallyinthoseminorforms,which,beingpractiseddaily,aresupposedknowntoeverybody,andthereforehavenotbeencommittedtowriting.Ourresources,inthisquarteroftheglobe,forobtaininginformationonthatpartofthesubject,arenotperfect.ButIhavebegunasketch,whichthosewhocomeaftermewillsuccessivelycorrectandfillup,tillacodeofrulesshallbeformedfortheuseoftheSenate,theeffectsofwhichmaybe,accuracyinbusiness,economyoftime,order,uniformity,andimpartiality.
NOTE.TherulesandpracticespeculiartotheSenateareprintedinItalic.ThoseofParliamentareintheRomanletter.
IMPORTANCEOFRULES.
SEC.I
THEIMPORTANCEOFADHERINGTORULES.
MR.ONSLOW,theablestamongtheSpeakersoftheHouseofCommons,usedtosay,'itwasamaximhehadoftenheard,whenhewasayoungman,fromoldandexperiencedmembers,thatnothingtendedmoretothrowpowerintothehandsofadministrationandthosewhoactedwiththemajorityoftheHouseofCommons,thananeglectof,ordeparturefrom,therulesofproceeding:
thattheseforms,asinstitutedbyourancestors,operatedasacheckandcontroulontheactionsofthemajority;andthattheywereinmanyinstances,ashelterandprotectiontotheminority,againsttheattemptsofpower.'Sofarthemaximiscertainlytrue,andisfoundedingoodsense,thatasitisalwaysinthepowerofthemajority,bytheirnumbers,tostopanyimpropermeasuresproposedonthepartoftheiropponents,theonlyweaponsbywhichtheminoritycandefendthemselvesagainstsimilarattemptsfromthoseinpower,aretheformsandrulesofproceedingwhichhavebeenadoptedastheywerefoundnecessaryfromtimetotime,andarebecomethelawoftheHouse;byastrictadherencetowhich,theweakerpartycanonlybeprotectedfromthoseirregularitiesandabuseswhichtheseformswereintendedtocheck,andwhichthewantonnessofpowerisbuttoooftenapttosuggesttolargeandsuccessfulmajorities.2Hats.171,172.
Andwhethertheseformsbeinallcasesthemostrationalornot,isreallynotofsogreatimportance.Itismuchmorematerialthatthereshouldbearuletogoby,thanwhatthatruleis;thattheremaybeanuniformityofproceedinginbusiness,notsubjecttothecapriceoftheSpeaker,orcaptiousnessofthemembers.Itisverymaterialthatorder,decencyandregularity,bepreservedinadignifiedpublicbody.2Hats.149.
Andin1698theLordssay,"thereasonablenessofwhatisdesiredisneverconsideredbyus,forweareboundtoconsidernothingbutwhatisusual.Mattersofformareessentialtogovernment,and'tisofconsequencetobeintheright.Allthereasonforformsiscustom,andthelawofformsispractice;andreasonisquiteoutofdoors.Someparticularcustomsmaynotbegroundedonreason,andnogoodaccountcanbegivenofthem;andyetmanynationsarezealousforthem;andEnglishmenareaszealousasanyotherstopursuetheiroldformsandmethods."4Hats.258.
SEC.II.
LEGISLATURE.
ALLLegislativepowershereingranted,shallbevestedinaCongressoftheUnitedStates,whichshallconsistofaSenateandHouseofRepresentatives.ConstitutionoftheUnitedStates,Art.1,Sec.1.
TheSenatorsandRepresentativesshallreceiveacompensationfortheirservices,tobeascertainedbylaw,andpaidoutoftheTreasuryoftheUnitedStates.ConstitutionoftheUnitedStates,Art.1.Sec.6.
ForthepowersofCongress,seethefollowingArticlesandSectionsoftheConstitutionoftheUnitedStates.I.4.7.8.9.II.1.2.III.3.IV.1.3.5.andalltheamendments.
SEC.III.
PRIVILEGE.
THEprivilegesofthemembersofParliament,fromsmallandobscurebeginnings,havebeenadvancingforcenturies,withafirmandneveryieldingpace.Claimsseemtohavebeenbroughtforwardfromtimetotime,andrepeated,tillsomeexampleoftheiradmissionenabledthemtobuildlawonthatexample.Wecanonlythereforestatethepointofprogressionatwhichtheynoware.Itisnowacknowledged,1.Thattheyareatalltimesexemptedfromquestionelsewhereforanythingsaidintheirownhouse;thatduringthetimeofprivilege,2.Neitheramemberhimself,1hiswife,orhisservants,(familiaressui)foranymatteroftheirown,maybearrested,2onmesneprocess,inanycivilsuit:
3.Norbedetainedunderexecution,thoughleviedbeforetimeofprivilege:
4.Norimpleaded,cited,orsubpoenaedinanycourt:
5.Norsummonedasawitnessorjuror:
6.Normaytheirlandsorgoodsbedistrained:
7.Northeirpersonsassaulted,orcharacterstraduced.Andtheperiodoftimecoveredbyprivilege,beforeandafterthesession,withthepracticeofshortprorogationsundertheconnivanceofthecrown,amountsinfacttoaperpetualprotectionagainstthecourseofjustice.Inoneinstance,indeed,ithasbeenrelaxedbythe10.G.3.c.50,whichpermitsjudiciaryproceedingstogoon
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