Non-Legislative
Nonlegislative Debate in the House: One-
December 2, 2020
Minute, Morning-Hour, and Special-Order
Jane A. Hudiburg
Speeches
Analyst on Congress and the Legislative Process
Minute, Morning-Hour, and Special-Order Speeches
Updated September 15, 2025
(R46626)
Jump to Main Text of Report
Summary
Three types of speeches have evolved in the House of Representatives to allow Members to Three types of speeches have evolved in the House of Representatives to allow Members to
address a variety of topics when legislation is not pending before the body: one-minute, morning-address a variety of topics when legislation is not pending before the body: one-minute, morning-
hour, and special-order speeches. These periods of hour, and special-order speeches. These periods of
non-legislativenonlegislative debate are not provided for in debate are not provided for in
House rules but are arranged under the terms of unanimous consent requests agreed to by the House rules but are arranged under the terms of unanimous consent requests agreed to by the
House. House.
Members delivering remarks are expected to adhere to House rules, the chamber
Members delivering remarks are expected to adhere to House rules, the chamber
’'s precedents, and the Speakers precedents, and the Speaker
’'s announced s announced
policies. House Rules I and XVII are especially pertinent to policies. House Rules I and XVII are especially pertinent to
non-legislativenonlegislative debate, as they provide the Speaker with the debate, as they provide the Speaker with the
powers to preserve order in the chamber and to recognize Members to speak.powers to preserve order in the chamber and to recognize Members to speak.
During periods of During periods of
non-legislativenonlegislative debate, Members may speak on matters related to their districts or on broader national and debate, Members may speak on matters related to their districts or on broader national and
international issues and events. These speeches have included announcing the introduction of a bill, recognizing individuals international issues and events. These speeches have included announcing the introduction of a bill, recognizing individuals
or institutions, promoting or opposing a policy action, or outlining the dayor institutions, promoting or opposing a policy action, or outlining the day
’'s legislative schedule. Recognition for s legislative schedule. Recognition for
non-legislativenonlegislative debate alters between the parties, and each party is allotted the same portion of time to deliver remarks. debate alters between the parties, and each party is allotted the same portion of time to deliver remarks.
One-minute speeches, which generally occur at the start of a legislative day, are allowed at the discretion of the Speaker and One-minute speeches, which generally occur at the start of a legislative day, are allowed at the discretion of the Speaker and
do not need to be reserved in advance. On days in which these speeches are permitted, Members may claim seats in the front do not need to be reserved in advance. On days in which these speeches are permitted, Members may claim seats in the front
row of their partiesrow of their parties
’' sides of the chamber and are then recognized, in turn, to address the House for one minute. sides of the chamber and are then recognized, in turn, to address the House for one minute.
Morning-hour and special-order speeches are reserved through the MembersMorning-hour and special-order speeches are reserved through the Members
’' respective party leaders. Members deliver five- respective party leaders. Members deliver five-
minute morning-hour speeches on days in which the House convenes early for the purposes of conducting minute morning-hour speeches on days in which the House convenes early for the purposes of conducting
non-legislative nonlegislative debate. Special-order speeches range in duration from debate. Special-order speeches range in duration from
five5 minutes to 60 minutes and are usually given during a minutes to 60 minutes and are usually given during a
four4-hour -hour
period following the conclusion of legislative business.
This report provides the rules, precedents, and policies governing non-legislative debate in the House and discusses the evolution and current practice of one-minute, morning-hour, and special-order speeches. The report will be updated to reflect any changes in House procedure affecting non-legislative debate.
Congressional Research Service
link to page 4 link to page 4 link to page 5 link to page 5 link to page 6 link to page 7 link to page 7 link to page 7 link to page 8 link to page 8 link to page 9 link to page 9 link to page 10 link to page 10 link to page 10 link to page 10 link to page 11 link to page 11 link to page 11 link to page 13 link to page 14 Non-Legislative Debate in the House
Contents
Introduction ................................................................................................................... 1
Uses of Non-Legislative Speeches ..................................................................................... 1
House Rules Related to Non-Legislative Debate .................................................................. 2
Rules I and XVII: Recognition and Decorum ................................................................. 2
Rule V: Broadcasting Non-Legislative Debate................................................................ 3
One-Minute Speeches ...................................................................................................... 4
Governing Authorities ................................................................................................ 4
Recognition .............................................................................................................. 4
Duration................................................................................................................... 5
Morning-Hour Debate...................................................................................................... 5
Governing Authorities ................................................................................................ 6
Days and Meeting Times ............................................................................................ 6
Recognition .............................................................................................................. 7
Duration................................................................................................................... 7
Special-Order Speeches ................................................................................................... 7
Governing Authorities ................................................................................................ 7
Recognition .............................................................................................................. 8
Duration................................................................................................................... 8
Inserting Remarks into the Record ..................................................................................... 8
Tables
Table 1. Non-Legislative Debate in the House ................................................................... 10
No table of figures entries found. No table of figures entries found.
Appendixes
No table of contents entries found.
Contacts
Author Contact Information ............................................................................................ 11
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Non-Legislative Debate in the House
Introduction
period following the conclusion of legislative business.
Introduction
House rules and precedents limit MembersHouse rules and precedents limit Members
’' opportunities to address the House on topics of their opportunities to address the House on topics of their
choosing. Among these restrictions, the most pertinent is House Rule XVII. This rule provides the choosing. Among these restrictions, the most pertinent is House Rule XVII. This rule provides the
Speaker with the discretionary power to recognize Members and requires Members, once Speaker with the discretionary power to recognize Members and requires Members, once
recognized, to confine their remarks to the measure, amendment, or motion that is currently recognized, to confine their remarks to the measure, amendment, or motion that is currently
before the House. The same rule also enables the Speaker or Members to before the House. The same rule also enables the Speaker or Members to
“cal "call to orderto order
”" any any
Member who Member who
“"transgresses the Rules of the House,transgresses the Rules of the House,
”" such as those governing decorum or words such as those governing decorum or words
spoken in debate. Thus, a Member, even after recognition, is restricted in speech and behavior spoken in debate. Thus, a Member, even after recognition, is restricted in speech and behavior
when speaking on the floor.when speaking on the floor.
Notwithstanding Rule XVII, Members often address the House on a wide variety of subjects Notwithstanding Rule XVII, Members often address the House on a wide variety of subjects
when no legislation is currently before the body. Such when no legislation is currently before the body. Such
non-legislativenonlegislative debate is not provided for debate is not provided for
in House rules but is arranged under the terms of unanimous consent requests agreed to by the in House rules but is arranged under the terms of unanimous consent requests agreed to by the
House.House.
Three forms of Three forms of
non-legislativenonlegislative debate have evolved in the House to enable Members to speak on debate have evolved in the House to enable Members to speak on
issues when no business is pending: one-minute, morning-hour, and special-order speeches. issues when no business is pending: one-minute, morning-hour, and special-order speeches.
During one-minute speeches, any Member may come to the During one-minute speeches, any Member may come to the
wel well and address the House for one and address the House for one
minute provided that he or she is recognized to do so. Morning-hour speeches, up to five minutes minute provided that he or she is recognized to do so. Morning-hour speeches, up to five minutes
in duration, and special-order speeches, ranging from five minutes to 60 minutes, are reserved in duration, and special-order speeches, ranging from five minutes to 60 minutes, are reserved
through the majority and minority party leadership.through the majority and minority party leadership.
Members engaging in such Members engaging in such
non-legislativenonlegislative debate are to adhere to House rules, chamber debate are to adhere to House rules, chamber
precedents, and the Speakerprecedents, and the Speaker
’'s announced policies, which govern aspects of the speeches s announced policies, which govern aspects of the speeches
including recognition, timing and duration, decorum, and chamber logistics. The Speaker including recognition, timing and duration, decorum, and chamber logistics. The Speaker
announces policies on the opening day of Congress and may make additional announcements announces policies on the opening day of Congress and may make additional announcements
within a Congress. Unanimous consent agreements established at the start of a new Congress or within a Congress. Unanimous consent agreements established at the start of a new Congress or
session, as session, as
wel well as subsequent consent requests agreed to by the House, further define the forms as subsequent consent requests agreed to by the House, further define the forms
of non-legislativeof nonlegislative debate. debate.
This report addresses the rules, precedents, and policies governing This report addresses the rules, precedents, and policies governing
non-legislativenonlegislative debate in the debate in the
House and discusses the evolution and current practice of one-minute, morning-hour, and special-House and discusses the evolution and current practice of one-minute, morning-hour, and special-
order speeches. The report order speeches. The report
wil will be updated to reflect any changes in House procedure affecting be updated to reflect any changes in House procedure affecting
non-legislativenonlegislative debate. debate.
Uses of Non-Legislative Speeches
Nonlegislative Speeches
When legislationWhen legislation
is pending before the House, Members are expected to confine their remarks to is pending before the House, Members are expected to confine their remarks to
subjects being addressed in the subjects being addressed in the
bil bill. In contrast, . In contrast,
non-legislativenonlegislative debate periods debate periods
al owallow for greater for greater
flexibility flexibility of subjects under discussion. For instance, Members may deliver remarks of concern to of subjects under discussion. For instance, Members may deliver remarks of concern to
their districts, such as in speeches that commend an individual or an institution. They may also their districts, such as in speeches that commend an individual or an institution. They may also
address broader national and international issues and events regardless of whether legislation has address broader national and international issues and events regardless of whether legislation has
been introduced on these topics.been introduced on these topics.
During periods of During periods of
non-legislativenonlegislative debate, Members may announce the introduction of a debate, Members may announce the introduction of a
bil ,
bill, solicit cosponsors, or introduce guest chaplains from their districts. Remarks may also address the solicit cosponsors, or introduce guest chaplains from their districts. Remarks may also address the
day’day's legislative schedule. These scheduling statements, often delivered as a s legislative schedule. These scheduling statements, often delivered as a
col oquycolloquy between between
the majority and minority leaders, may support or oppose soon-to-be pending legislation or the majority and minority leaders, may support or oppose soon-to-be pending legislation or
outline the expected schedule for the daily session.outline the expected schedule for the daily session.
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One-minute, morning-hour, and special-order speeches are available to One-minute, morning-hour, and special-order speeches are available to
al all Members but can be Members but can be
particularly beneficial to junior Members or those of the minority party, who might otherwise particularly beneficial to junior Members or those of the minority party, who might otherwise
have few opportunities to speak before the House. Members may post their remarks on their have few opportunities to speak before the House. Members may post their remarks on their
websites or highlight them in other constituent communications.websites or highlight them in other constituent communications.
11
House Rules Related to Non-Legislative Debate
Nonlegislative Debate
The three forms of The three forms of
non-legislativenonlegislative debate are not provided for in House rules. Rather, one-minute, debate are not provided for in House rules. Rather, one-minute,
morning-hour, and special-order speeches have developed as a unanimous consent practice in morning-hour, and special-order speeches have developed as a unanimous consent practice in
compliance with House rules, precedents, and the Speakercompliance with House rules, precedents, and the Speaker
’'s announced policies, which are s announced policies, which are
announced on the opening day of Congress and may be altered or refined within a Congress. announced on the opening day of Congress and may be altered or refined within a Congress.
Policies related to Policies related to
non-legislativenonlegislative debate are often the same, or similar, as the policies announced debate are often the same, or similar, as the policies announced
in previous Congresses.in previous Congresses.
Members engaging in Members engaging in
non-legislativenonlegislative debate must abide by the standing House rules. The House debate must abide by the standing House rules. The House
rules most pertinent to rules most pertinent to
non-legislativenonlegislative debate are Rules I and XVII and also Rule V. Rules I and debate are Rules I and XVII and also Rule V. Rules I and
XVII address debate and decorum in the chamber. Clause 2 of Rule XVII provides the SpeakerXVII address debate and decorum in the chamber. Clause 2 of Rule XVII provides the Speaker
’s
's discretionary power of recognition.discretionary power of recognition.
22 Pursuant to clause 2(a) of Rule V, the Speaker maintains Pursuant to clause 2(a) of Rule V, the Speaker maintains
control over the broadcasting of House floor proceedings.control over the broadcasting of House floor proceedings.
Rules I and XVII: Recognition and Decorum
Rule I, clause 2, affords the Speaker with the power to preserve order in the chamber. Clause 5 of Rule I, clause 2, affords the Speaker with the power to preserve order in the chamber. Clause 5 of
the same rule enables the Speaker to rule, subject to an appeal of the House, on questions of order the same rule enables the Speaker to rule, subject to an appeal of the House, on questions of order
raised by the Speaker or another Member.raised by the Speaker or another Member.
33
Rule XVII defines the Speaker
Rule XVII defines the Speaker
’'s power of recognition and provides additional parameters on s power of recognition and provides additional parameters on
decorum and debate. Clause 1(a) requires Members to seek and receive recognition from the decorum and debate. Clause 1(a) requires Members to seek and receive recognition from the
Speaker or the chair of the Committee of the Whole before making an address, offering a motion, Speaker or the chair of the Committee of the Whole before making an address, offering a motion,
or making a point of order. Accordingly, the Speaker or the chair, pursuant to clause 2, determines or making a point of order. Accordingly, the Speaker or the chair, pursuant to clause 2, determines
who wil who will be recognized and for what purpose.be recognized and for what purpose.
44 The same clause provides a 60-minute cap for The same clause provides a 60-minute cap for
special-order speeches and restricts Members from speaking for more than one hour on any special-order speeches and restricts Members from speaking for more than one hour on any
question.question.
Clause 1(b) of Rule XVII requires Members to speak on the pending business (the legislative Clause 1(b) of Rule XVII requires Members to speak on the pending business (the legislative
measure or motion before the House) and prohibits them from maligning the character or measure or motion before the House) and prohibits them from maligning the character or
intentions of a intentions of a
fel owfellow Member or another official, such as the President. Member or another official, such as the President.
55 Rule XVII also Rule XVII also
1 Broadcast coverage made available under Rule V may not be used for campaign or commercial purposes. See clause 2(c) of Rule V for limitations on the use of audio and visual broadcasting and recording of House floor proceedings. U.S. Congress, House, Constitution, Jefferson’s Manual and the Rules of the House (hereinafter House Manual), 115th Cong., 2nd sess. (Washington: GPO, 2019), §684.
2 Charles W. Johnson, John V. Sullivan, and T homas J. Wickham Jr., House Practice: A Guide to the Rules,
Precedents, and Procedures of the House (Washington: GPO, 2017), ch. 16, §50. 3 Pursuant to clause 5 of House Rule I, the Speaker’s rulings on questions of order are subject to the appeal of a Member or Delegate or the Resident Commissioner. Following the appeal, the House may vote to sustain or overturn the ruling. House Manual, §627.
4 House Practice, ch. 46, §1. 5 T he rule does not specify what would be considered unparliamentary, but statements made by the chair indicate that general admonishments are not a sufficient offense if they do not identify individual Members. See CRS Report R45866, Words Taken Down: Calling Mem bers to Order for Disorderly Language in the House , by Gail E. Baitinger.
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addresses comportment in the chamber and the use of exhibits. Members who engage in addresses comportment in the chamber and the use of exhibits. Members who engage in
disorderly or unparliamentary conduct may be subject to a disorderly or unparliamentary conduct may be subject to a
cal call to order by another Member, to order by another Member,
whereby the offending words are written down and read aloud by the Clerk (hence, the procedure whereby the offending words are written down and read aloud by the Clerk (hence, the procedure
is known as is known as
“"words taken downwords taken down
”") or have their statements, on order of the House, stricken from ) or have their statements, on order of the House, stricken from
the the
Congressional Record..
66
Rule V: Broadcasting Non-Legislative Debate
Clause 2(a) of Rule V provides the Speaker with the authority to control
Floor Fight over Special-Order Broadcasting
audio and visual broadcasting of
Policy
House floor proceedings. During
Nonlegislative Debate
Floor Fight over Special-Order Broadcasting Policy
In 1984, minority party Members,In 1984, minority party Members,
led by the Conservative Opportunity Society, delivered several coordinated special-order speeches that were critical of House leadership. led by the Conservative
morning-hour and special-order
Opportunity Society, delivered several coordinated special-order
speeches, the Speaker’s announced
speeches that were critical of House leadership. In response,
policy, which was instituted in the
In response, Speaker Tip OSpeaker Tip O
’Neil 'Neill instructed the camera operators to pan the instructed the camera operators to pan the
103rd Congress (1993-1994) and
near-empty chamber in ordernear-empty chamber in order
to show that few Members to show that few Members
reestablished in every subsequent
attended the late-night speeches.attended the late-night speeches.
Congress, is to fix the camera on the
Shortly after the new policy took effect, SpeakerShortly after the new policy took effect, Speaker
O’Neil O'Neill and and
Representative Newt Gingrich,Representative Newt Gingrich,
engaged in a heated exchange on engaged in a heated exchange on
rostrum or the Member delivering
the House floor,the House floor,
during which Speakerduring which Speaker
O’Neil O'Neill spoke directly to spoke directly to
remarks (and not have the camera pan
Representative Gingrich, Representative Gingrich,
cal ingcalling one of his special-order one of his special-order
speeches
the chamber).7 At the bottom of the
“ speeches "the lowest thing that I have everthe lowest thing that I have ever
seen.seen.
”" Representative Trent Representative Trent
screen, viewers see a “crawl” message
Lott demanded that the SpeakerLott demanded that the Speaker
’s 's words be taken down, and the words be taken down, and the
stating that the House is conducting
Speaker pro tempore ruled in favor of the demand, stating, Speaker pro tempore ruled in favor of the demand, stating,
“"The The
Chair feelsChair feels
that that type of characterization should not be used that that type of characterization should not be used
morning-hour debate or that
in debate.”
legislative business has concluded for
Despite in debate."
Despite continued criticismcontinued criticism
from the minority party, the from the minority party, the
the day and the House is in a period of
Speaker’s Speaker's policy to pan the chamberpolicy to pan the chamber
during special-order during special-order
special-order speeches.8
speeches remained speeches remained in effect until February 11, 1994 (in effect until February 11, 1994 (
103rd 103rd Congress). On that day, SpeakerCongress). On that day, Speaker
Tom Foley announced that Tom Foley announced that
Clause 2(a) also requires complete
television cameras television cameras would not pan the chamber while Members would not pan the chamber while Members
broadcast coverage of House
gave special-ordergave special-order
speeches.speeches.
On January 4, 1995 (On January 4, 1995 (
104th
proceedings. However, it does not
104th Congress), 11 years after his floor skirmishCongress), 11 years after his floor skirmish
with Speaker O'Neill, with Speaker O’Neil ,
require that Members’ microphones
the newly elected Speaker Gingrich the newly elected Speaker Gingrich
re-instated Foley’s no-reinstated Foley's no-panning policy. Subsequently, the Speakerpanning policy. Subsequently, the Speaker
’s 's policy not to pan the chamber during nonlegislative debate has been reinstated at the start of each Congress.
Sources: "Televised Partisan Skirmishes Erupt in House," policy not to pan the
remain on if they continue to speak
chamber during non-legislative debate has been reinstated at the
when no longer under recognition,
start of each Congress.
such as when their conduct is deemed
Sources: "Televised Partisan Skirmishes Erupt in House,"
by the chair to be disorderly.9
CQ Almanac 1984 (Washington, DC: Congressional (Washington, DC: Congressional
Quarterly,Quarterly,
1985), pp. 206-209;1985), pp. 206-209;
Congressional Record,,
vol. 130 vol. 130
(May 15, 1984), pp. 12201-12202.
6 Clause 4, Rule XVII, House Manual, §961. See also CRS Report R45866, Words Taken Down: Calling Members to
Order for Disorderly Language in the House, by Gail E. Baitinger.
7 House Manual, §684. 8 Congressional Record (January 3, 2019), p. H199. 9 House Practice, ch. 10, §5.
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Non-Legislative Debate in the House
One-Minute Speeches
When permitted by the Speaker, one-minute speeches are general y(May 15, 1984), pp. 12201-12202.
Clause 2(a) of Rule V provides the Speaker with the authority to control audio and visual broadcasting of House floor proceedings. During morning-hour and special-order speeches, the Speaker's announced policy, which was instituted in the 103rd Congress (1993-1994) and reestablished in every subsequent Congress, is to fix the camera on the rostrum or the Member delivering remarks (and not have the camera pan the chamber).7 At the bottom of the screen, viewers see a "crawl" message stating that the House is conducting morning-hour debate or that legislative business has concluded for the day and the House is in a period of special-order speeches.8
Clause 2(a) also requires complete broadcast coverage of House proceedings. However, it does not require that Members' microphones remain on if they continue to speak when no longer under recognition, such as when their conduct is deemed by the chair to be disorderly.9
One-Minute Speeches
When permitted by the Speaker, one-minute speeches are generally given at the start of a legislative given at the start of a legislative day after the chaplainday after the chaplain
’'s prayer, the approval of the House s prayer, the approval of the House
Journal, and the Pledge of , and the Pledge of
Al egiance. Allegiance. These speeches may also be These speeches may also be
al owedallowed, at the Speaker, at the Speaker
’'s discretion, after the conclusion s discretion, after the conclusion
of legislativeof legislative
business and before the beginning of the period for special-order speeches. During business and before the beginning of the period for special-order speeches. During
the one-minute speech period, Members seek unanimous consent to address the House for one the one-minute speech period, Members seek unanimous consent to address the House for one
minute on topics of their choosing. One-minute speeches do not need to be reserved in advance minute on topics of their choosing. One-minute speeches do not need to be reserved in advance
through party leadership.through party leadership.
Governing Authorities
One-minute speeches are permitted as a unanimous consent practice of the House. They must be One-minute speeches are permitted as a unanimous consent practice of the House. They must be
in compliance with House rules, precedents, and the Speakerin compliance with House rules, precedents, and the Speaker
’'s announced policies that are s announced policies that are
established in each Congress.established in each Congress.
The practice of limiting certain The practice of limiting certain
non-legislativenonlegislative speeches to one minute began in 1937 ( speeches to one minute began in 1937 (
75th 75th Congress). Majority Leader Sam Rayburn announced that he would hereafter object to Congress). Majority Leader Sam Rayburn announced that he would hereafter object to
“"requests requests
to address the House for more than 1 minute before the legislativeto address the House for more than 1 minute before the legislative
business has been business has been
concluded.concluded.
”10"10 In 1945 ( In 1945 (
79th79th Congress), Rayburn, as Speaker, reiterated this policy, noting that Congress), Rayburn, as Speaker, reiterated this policy, noting that
since his statement in 1937, since his statement in 1937,
“"Members have not asked to proceed for more than a minute before Members have not asked to proceed for more than a minute before
the legislativethe legislative
program.program.
”11
"11
One-minute speeches are currently governed by the SpeakerOne-minute speeches are currently governed by the Speaker
’'s policy first announced in 1984 s policy first announced in 1984
(98th(98th Congress) and Congress) and
re-establishedreestablished, as modified, in each subsequent Congress., as modified, in each subsequent Congress.
1212 Precedents Precedents
further prescribe the practice of one-minute speeches. These precedents may supersede or clarify further prescribe the practice of one-minute speeches. These precedents may supersede or clarify
the Speakerthe Speaker
’'s announced policy.s announced policy.
1313
Recognition
Pursuant to clause 2 of House Rule XVII, the Speaker has the discretion to decide if Members Pursuant to clause 2 of House Rule XVII, the Speaker has the discretion to decide if Members
wil will be recognized for one-minute speeches and how many speeches be recognized for one-minute speeches and how many speeches
wil be al owedwill be allowed during any during any
legislative legislative day. Depending on the legislativeday. Depending on the legislative
schedule, the Speaker may provide for a specific schedule, the Speaker may provide for a specific
number of speeches, number of speeches,
al owallow an unlimited number during a designated period of time, or not an unlimited number during a designated period of time, or not
al ow any speeches.14 General yallow any speeches.14 Generally, the chair states at the start of a legislative day how many one-minute , the chair states at the start of a legislative day how many one-minute
speeches wil be al owed.15
speeches will be allowed.15
The chair reserves The chair reserves
“"the right to limit 1-minute speeches to a certain time or to a special place in the right to limit 1-minute speeches to a certain time or to a special place in
the program on any given day, with notice to the leadership.the program on any given day, with notice to the leadership.
”16"16 Since the Since the
115th115th Congress (2017- Congress (2017-
2018), the Speaker2018), the Speaker
’'s announced policy has included an additional provision formalizing an earlier tradition that states that the chair will not recognize "s announced policy has included an additional provision formalizing an earlier
10 Congressional Record, vol. 81 (August 2, 1937), p. 8004. 11 Congressional Record, vol. 91 (March 6, 1945), pp. 1788-1789. 12 See Speaker’s announced policy, Congressional Record, vol. 130 (August 8, 1984), p. 22963. 13 House Manual, §950. 14 House Practice, ch. 16, §50. 15 T he majority leader’s daily announcement also states when and how many one-minute speeches will be allowed during a specified legislative day. See https://www.majorityleader.gov/floor-resources/the-daily-leader.
16 Congressional Record, daily edition (January 3, 2019), p. H199.
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Non-Legislative Debate in the House
tradition that states that the chair wil not recognize “Members for a one-minute speech more than
Members for a one-minute speech more than one time per legislativeone time per legislative
day.day.
”17
"17
The current practice for recognizing Members is based on the SpeakerThe current practice for recognizing Members is based on the Speaker
’'s announced policy of s announced policy of
1984 (1984 (
98th Congress) as modified and re-established in the 116th Congress.1898th Congress) as reestablished in the 119th Congress.18 The chair alters The chair alters
recognition between the majority and minority in the order in which Members seek recognition in recognition between the majority and minority in the order in which Members seek recognition in
the the
wel well, recognizing Members from the chair, recognizing Members from the chair
’'s right to the chairs right to the chair
’'s left. (From the chairs left. (From the chair
’'s vantage s vantage
point, Democratic Party members are seated on the right, and Republican Party members are point, Democratic Party members are seated on the right, and Republican Party members are
seated on the left.)seated on the left.)
Members intending to make one-minute speeches may claim seats in the front row of their Members intending to make one-minute speeches may claim seats in the front row of their
parties’parties' sides of the chamber. In doing so, they are aware of the order in which they sides of the chamber. In doing so, they are aware of the order in which they
wil will likely likely
speak. (Republican Members are speak. (Republican Members are
general ygenerally recognized by their proximity to the center aisle, recognized by their proximity to the center aisle,
while Democratic Members are while Democratic Members are
general ygenerally recognized by their proximity to the Speaker recognized by their proximity to the Speaker
’'s Lobby.)s Lobby.)
Members do not have to reserve their positions in advance with party leadership. However, on Members do not have to reserve their positions in advance with party leadership. However, on
some days, party leaders may organize their Members into what are sometimes some days, party leaders may organize their Members into what are sometimes
cal ed “theme
teams” or “called "theme teams" or "message groupsmessage groups
”" to deliver the party to deliver the party
’'s message to the American people. Since the s message to the American people. Since the
101st101st Congress (1989-1990), the chair has followed a Congress (1989-1990), the chair has followed a
“"practice of recognizing Members practice of recognizing Members
suggested by their party leadership before others in the suggested by their party leadership before others in the
wel .”19
well."19
When a MemberWhen a Member
’'s turn to speak arrives, the Member approaches the Speakers turn to speak arrives, the Member approaches the Speaker
’'s rostrum to seek s rostrum to seek
recognition for one minute. Once recognized, the Member speaks in the recognition for one minute. Once recognized, the Member speaks in the
wel well from a lectern on the from a lectern on the
appropriate side of the chamber.appropriate side of the chamber.
Duration
As the name implies,As the name implies,
one-minute speeches are limited to 60 seconds in duration. The chairone-minute speeches are limited to 60 seconds in duration. The chair
’s 's calculation of time consumed is calculation of time consumed is
“"not subject to not subject to
chal enge.”20challenge."20 By precedent, the chair endeavors By precedent, the chair endeavors
“to al ocateto allocate time in a nonpartisan manner time in a nonpartisan manner
” and and
wil not “will not "entertain a request to extend recognition entertain a request to extend recognition
beyond one minute.beyond one minute.
”
Traditional y"21
Traditionally, the chair does not monitor the time consumed by the Speaker, the majority leader, , the chair does not monitor the time consumed by the Speaker, the majority leader,
and the minority leader in order to afford House leaders and the minority leader in order to afford House leaders
“"the courtesy of extended and unfettered the courtesy of extended and unfettered
debate.debate.
”21"22 Once recognized to address the House for one minute, these individuals may speak for Once recognized to address the House for one minute, these individuals may speak for
longer durations of time.longer durations of time.
Morning-Hour Debate
During morning-hour debate, Members address the House for up to five minutes on topics of their During morning-hour debate, Members address the House for up to five minutes on topics of their
choosing. On legislative days in which these speeches are permitted, the House convenes two choosing. On legislative days in which these speeches are permitted, the House convenes two
hours early for hours early for
non-legislativenonlegislative debate. Members reserve time for a morning-hour speech through debate. Members reserve time for a morning-hour speech through
17 House Manual, §950. 18 Congressional Record, daily edition (January 3, 2019), p. H199. 19 House Manual, §950. 20 House Manual, §950. 21 House Practice, ch. 16, §45. On February 7, 2018, then-Minority Leader Nancy Pelosi delivered a one-minute speech that lasted eight hours and six minutes, a record for the longest House floor sp eech since at least 1909, according to the House Historian. See Sheryl Gay Stolberg, “Pelosi Held House Floor in Advocacy of ‘Dreamers’ for More T han 8 Hours,” New York Times, February 7, 2018, https://www.nytimes.com/2018/02/07/us/politics/pelosi-dreamers-budget-deal.html.
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their party leadership. After morning-hour speeches conclude, the House recesses for at least 10 their party leadership. After morning-hour speeches conclude, the House recesses for at least 10
minutes prior to resuming its session and proceeding with legislative business.minutes prior to resuming its session and proceeding with legislative business.
Governing Authorities
Morning-hour debate is enabled by a unanimous consent request agreed to at the start of a new Morning-hour debate is enabled by a unanimous consent request agreed to at the start of a new
Congress or session rather than the SpeakerCongress or session rather than the Speaker
’'s announced policies. As with the other forms of s announced policies. As with the other forms of
non-
legislative nonlegislative debate, Members must adhere to House rules governing speech and decorum.debate, Members must adhere to House rules governing speech and decorum.
The morning-hour debate period was established in the The morning-hour debate period was established in the
103rd103rd Congress in response to new Congress in response to new
limitations placed on special-order speeches. (In 1994, special-order speeches were restricted to a limitations placed on special-order speeches. (In 1994, special-order speeches were restricted to a
four-hour period, and no Members could be recognized for such speeches after midnight.) The four-hour period, and no Members could be recognized for such speeches after midnight.) The
first unanimous consent agreement set a 90-day trial period. At the end of this period, the House first unanimous consent agreement set a 90-day trial period. At the end of this period, the House
agreed to another unanimous consent request that extended the practice for the duration of the agreed to another unanimous consent request that extended the practice for the duration of the
Congress. In each Congress since, unanimous consent agreements have been used to authorize Congress. In each Congress since, unanimous consent agreements have been used to authorize
morning-hour speeches. morning-hour speeches.
Days and Meeting Times
The meeting times for morning-hour debate are established in unanimous consent requests agreed The meeting times for morning-hour debate are established in unanimous consent requests agreed
to by the House at the start of a new Congress or session. The current practice follows an to by the House at the start of a new Congress or session. The current practice follows an
agreement requested by the House majority leader on the opening day of the agreement requested by the House majority leader on the opening day of the
116th Congress.22
119th Congress.23 This agreement states that, on Mondays through Thursdays, when the House is session, the House This agreement states that, on Mondays through Thursdays, when the House is session, the House
shal shall convene two hours earlier than the daily hour of meeting in order to conduct morning-hour convene two hours earlier than the daily hour of meeting in order to conduct morning-hour
debate. If the House adopts an order (by motion, resolution, or unanimous consent) to meet at a debate. If the House adopts an order (by motion, resolution, or unanimous consent) to meet at a
time that differs from the daily hour of meeting, the House time that differs from the daily hour of meeting, the House
wil will meet to conduct morning-hour meet to conduct morning-hour
debate at the time designated by the order.debate at the time designated by the order.
2324
The daily hour of meeting is determined by a House resolution agreed to at the start of a Congress
The daily hour of meeting is determined by a House resolution agreed to at the start of a Congress
or session.or session.
2425 During the first session of the During the first session of the
116th119th Congress, H.Res. Congress, H.Res.
106 fixed the daily hour of fixed the daily hour of
meeting as meeting as
“"2 p.m. on Mondays; noon on Tuesdays (or 2 p.m. if no legislative business was 2 p.m. on Mondays; noon on Tuesdays (or 2 p.m. if no legislative business was
conducted on the preceding Monday); noon on Wednesdays and Thursdays; and 9 a.m. on conducted on the preceding Monday); noon on Wednesdays and Thursdays; and 9 a.m. on
al all other days of the week.other days of the week.
”" Thus, during that session, morning-hour debates commenced at noon or Thus, during that session, morning-hour debates commenced at noon or
10:00 a.m. on Mondays through Thursdays, unless the House established, by order, a different 10:00 a.m. on Mondays through Thursdays, unless the House established, by order, a different
time for morning-hour debate. Regardless of when morning-hour debate is provided for, however, time for morning-hour debate. Regardless of when morning-hour debate is provided for, however,
the Speaker is authorized to dispense with the debate period the Speaker is authorized to dispense with the debate period
“"if emergency reconvening if emergency reconvening
authorities are exercised.authorities are exercised.
”25
"26
Pursuant to clause 1 of Rule XIV, the HousePursuant to clause 1 of Rule XIV, the House
’'s daily order of business, unless otherwise ordered, s daily order of business, unless otherwise ordered,
shal shall begin with the chaplainbegin with the chaplain
’'s opening prayer followed by the approval of the Journal and the Pledge of Allegiance.27s opening prayer followed by the approval of the Journal and the
22 Unanimous consent agreement, Congressional Record, daily edition (January 3, 2019), p. H198. 23 For example, a Member might state, “I ask unanimous consent that when the House adjourns today, it adjourn to meet on Monday next, when it shall convene at noon for morning-hour debate and 2 p.m. for legislative business.” Congressional Record, daily edition (March 5, 2020), H1519. For information about House adjournments and setting the time to reconvene, see CRS Report R42977, Sessions, Adjournm ents, and Recesses of Congress, by Richard S. Beth and Valerie Heitshusen.
24 At the start of each session of the 116th Congress, the House agreed to a resolution determining the daily hour of meeting: H.Res. 10, fixing the daily hour of meeting of the first session of the 116th Congress, and H.Res. 778, providing for the hour of meeting of the House. T he two resolutions contained identical text.
25 House Practice, ch. 16, §50.
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Pledge of Al egiance.26 However, on days designated for morning-hour debate, a previous order However, on days designated for morning-hour debate, a previous order
(the unanimous consent agreement that governs morning-hour debate) establishes the following (the unanimous consent agreement that governs morning-hour debate) establishes the following
schedule: morning-hour debate, recess, and resumption of the House session at the time fixed by schedule: morning-hour debate, recess, and resumption of the House session at the time fixed by
resolution or a previous order. Morning-hour debate may not extend beyond 10 minutes before resolution or a previous order. Morning-hour debate may not extend beyond 10 minutes before
the time set for the daily hour of meeting. The prayer, approval of thethe time set for the daily hour of meeting. The prayer, approval of the
Journal, and the Pledge of , and the Pledge of
Al egiance Allegiance are postponed until the House resumes its session after the recess. are postponed until the House resumes its session after the recess.
Recognition
The time set aside for morning-hour debate is The time set aside for morning-hour debate is
al ocated equal yallocated equally between the parties. The Speaker between the parties. The Speaker
alternates recognition of Members by party for the initialalternates recognition of Members by party for the initial
and subsequent speeches. Such and subsequent speeches. Such
recognition is based on lists submitted to the chair by the majority and minority leaders. Members recognition is based on lists submitted to the chair by the majority and minority leaders. Members
wishing to speak must reserve time through their respective leadership. During the morning-hour wishing to speak must reserve time through their respective leadership. During the morning-hour
period, the Speaker recognizes Members for period, the Speaker recognizes Members for
non-legislativenonlegislative debate only, and such recognition debate only, and such recognition
may be withdrawnmay be withdrawn
.27
Duration
"should circumstances (such as disorderly conduct) so warrant."28
Duration
The duration of morning-hour speeches is to be no longer than five minutes. The chair The duration of morning-hour speeches is to be no longer than five minutes. The chair
wil will not not
entertain unanimous consent requests to extend individual speeches beyond five minutes or to entertain unanimous consent requests to extend individual speeches beyond five minutes or to
extend the debate period past the 10-minute termination time. The five-minute limit, however, is extend the debate period past the 10-minute termination time. The five-minute limit, however, is
not placed on the majority leader, the minority leader, or the minority whip.not placed on the majority leader, the minority leader, or the minority whip.
28 29
Special-Order Speeches
Special-order speeches are evenly divided between the parties and Special-order speeches are evenly divided between the parties and
general ygenerally occur following the occur following the
conclusion of legislative business. This period can be as long as four hours but may not extend conclusion of legislative business. This period can be as long as four hours but may not extend
beyond 10 p.m. Members reserve time to speak through their party leadership and are limited to beyond 10 p.m. Members reserve time to speak through their party leadership and are limited to
one such speech per week.one such speech per week.
30 Members may speak for up to one hour, and they may be assigned Members may speak for up to one hour, and they may be assigned
shorter shorter
al ocationsallocations of time at the discretion of party leadership. Each party may establish of time at the discretion of party leadership. Each party may establish
additional guidelines to Members regarding requests to speak during the special-order period.additional guidelines to Members regarding requests to speak during the special-order period.
Governing Authorities
Like one-minute speeches, special-order speeches have developed as a unanimous consent Like one-minute speeches, special-order speeches have developed as a unanimous consent
tradition of the House. Members delivering these speeches are restricted by clause 2 of Rule tradition of the House. Members delivering these speeches are restricted by clause 2 of Rule
XVII, which prohibits any Member for speaking for more than one hour in debate, even by XVII, which prohibits any Member for speaking for more than one hour in debate, even by
unanimous consent.unanimous consent.
The current practice for recognizing and delivering special-order speeches is derived from earlier The current practice for recognizing and delivering special-order speeches is derived from earlier
Speakers’Speakers' policies that have been modified in subsequent Congresses. The announced policy of policies that have been modified in subsequent Congresses. The announced policy of
the the
98th98th Congress (1983-1984) provided the practice of alternating recognition between the Congress (1983-1984) provided the practice of alternating recognition between the
majority and minority parties.majority and minority parties.
2931 The policy of the The policy of the
103rd103rd Congress (1993-1994) established the Congress (1993-1994) established the
four-hour special-order period following the conclusion of legislative business, the pre-four-hour special-order period following the conclusion of legislative business, the pre-
26 House Manual, §869. 27 House Practice, ch. 16, §50. 28 House Practice, ch. 16, §50; Congressional Record, daily edition (January 3, 2019), p. H198. 29 Congressional Record, vol. 130 (August 8, 1984), p. 22963.
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reservation practice, and a restriction on recognition after midnight, which was changed to 10:00 reservation practice, and a restriction on recognition after midnight, which was changed to 10:00
p.m. in 2011 (p.m. in 2011 (
112th112th Congress). In the Congress). In the
116th119th Congress ( Congress (
2019-20202025-2026), the Speaker ), the Speaker
re-establishedreestablished the the
policy of not recognizing a Member for more than one special-order speech per week, policy of not recognizing a Member for more than one special-order speech per week,
“"nor may a nor may a
Member sign up for a second special-order speech in the same week.Member sign up for a second special-order speech in the same week.
”30"32
Recognition
In normal practice, special-order speeches occur after the conclusion of legislative business. The In normal practice, special-order speeches occur after the conclusion of legislative business. The
period for speeches is no longer than four hours evenly divided between the parties. Speeches period for speeches is no longer than four hours evenly divided between the parties. Speeches
may extend past the four-hour limit with the permission of the chair, which is granted only may extend past the four-hour limit with the permission of the chair, which is granted only
“"with with
advance consultation between the leaderships and notification to the House.advance consultation between the leaderships and notification to the House.
”"33 Recognition, Recognition,
however, however,
wil will not be granted after 10:00 p.m.not be granted after 10:00 p.m.
Each party may reserve its first hour for party leaders or their designees. The hour may be Each party may reserve its first hour for party leaders or their designees. The hour may be
subdivided and subdivided and
real ocatedreallocated by the leadership concerned. Recognition during this first hour by the leadership concerned. Recognition during this first hour
alternates between the parties. For instance, if a Member of the Democratic Caucus is first alternates between the parties. For instance, if a Member of the Democratic Caucus is first
recognized for the first hour of the special-order period on one day, a Member of the Republican recognized for the first hour of the special-order period on one day, a Member of the Republican
Conference Conference
wil will be the first recognized for the first hour on the next legislative day that special-be the first recognized for the first hour on the next legislative day that special-
order speeches occur.order speeches occur.
3134
The parties
The parties
’' second hour of time is divided into two 30-minute periods. First recognition for these second hour of time is divided into two 30-minute periods. First recognition for these
shorter periods also alternates between the parties from day to day. shorter periods also alternates between the parties from day to day.
Recognition for individual Members and the time they are
Recognition for individual Members and the time they are
al ottedallotted is determined by a list that is determined by a list that
party leadership submits to the chair. The chair alternates recognition between the parties and party leadership submits to the chair. The chair alternates recognition between the parties and
“"the the
Speaker may withdraw recognition should circumstances warrant.Speaker may withdraw recognition should circumstances warrant.
”32"35
Duration
Special-order speeches may not last for more than one hour during the partySpecial-order speeches may not last for more than one hour during the party
’'s first s first
al ocatedallocated hour hour
and no more than 30 minutes during the partyand no more than 30 minutes during the party
’'s second hour. The one-hour or 30-minute s second hour. The one-hour or 30-minute
al ocationsallocations may not be extended via a unanimous consent request. Any time that is not claimed may not be extended via a unanimous consent request. Any time that is not claimed
during the 60-minute period or each of the 30-minute periods is during the 60-minute period or each of the 30-minute periods is
“considered to considered to
behave expired. expired.
” If legislative If legislative business concludes after 6:00 p.m., the time for special-order speeches is prorated to business concludes after 6:00 p.m., the time for special-order speeches is prorated to
end by 10:00 p.m., end by 10:00 p.m.,
al owingallowing both parties the same both parties the same
al otmentallotment of the remaining time. of the remaining time.
33
36
A Member recognized to speak may yield to colleagues but may not specify a block of time that A Member recognized to speak may yield to colleagues but may not specify a block of time that
the colleague may speak. After yielding, the Member may regain the floor by stating, the colleague may speak. After yielding, the Member may regain the floor by stating,
“"reclaiming reclaiming
my time.my time.
”" Due to the practice of yielding to colleagues, one special-order speech may include Due to the practice of yielding to colleagues, one special-order speech may include
statements made by more than one Member. Accordingly, leadership may coordinate with statements made by more than one Member. Accordingly, leadership may coordinate with
multiple Members to provide a 60-minute speech consisting of several statements on the same multiple Members to provide a 60-minute speech consisting of several statements on the same
topic.topic.
Inserting Remarks into the Record
In addition to delivering speeches on the House floor, Members may ask unanimous consent to In addition to delivering speeches on the House floor, Members may ask unanimous consent to
insert remarks as written statements into the insert remarks as written statements into the
Congressional Record. Alternatively,. Alternatively,
Members may, in their initial request to deliver a nonlegislativeMembers may, 30 Congressional Record, daily edition (January 3, 2019), p. H199. 31 House Practice, ch. 16, §50. 32 T hese circumstances include disorderly conduct. House Practice, ch. 16, §50. 33 Speaker’s announced policy, Congressional Record, daily edition (January 3, 2019), p. H199.
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in their initial request to deliver a non-legislative speech, ask permission to extend and revise speech, ask permission to extend and revise
their remarks. Agreement to such a request their remarks. Agreement to such a request
al owsallows the Member to make technical, grammatical, the Member to make technical, grammatical,
and typographical corrections. Permission to extend remarks also and typographical corrections. Permission to extend remarks also
al owsallows the Member to insert any the Member to insert any
undelivered portion of a speech into the undelivered portion of a speech into the
Congressional Record. The Member may also insert . The Member may also insert
extraneous matter, such as articles and letters from constituents. The undelivered portion of the extraneous matter, such as articles and letters from constituents. The undelivered portion of the
speech and extraneous matter is printed in a distinctive typeface.speech and extraneous matter is printed in a distinctive typeface.
If a Member seeks to insert remarks into the If a Member seeks to insert remarks into the
Record adjacent to another Member adjacent to another Member
’'s delivered s delivered
speech, the Member inserting remarks may coordinate with the other Member in advance of the speech, the Member inserting remarks may coordinate with the other Member in advance of the
delivered speech. To accommodate this, the Member delivering the speech requests unanimous delivered speech. To accommodate this, the Member delivering the speech requests unanimous
consent that consent that
al all Members have five legislativeMembers have five legislative
days to revise and extend their remarks on the days to revise and extend their remarks on the
subject of the speech. (Some Members routinely make these requests without pre-coordinating subject of the speech. (Some Members routinely make these requests without pre-coordinating
with Members seeking to insert statements.) Agreement to this request with Members seeking to insert statements.) Agreement to this request
al owsallows other Members to other Members to
insert their written remarks into the insert their written remarks into the
Record below this point. The statement is printed in below this point. The statement is printed in
distinctive typeface below the delivered speech.distinctive typeface below the delivered speech.
34
34 T o insert remarks into the Congressional Record, Members and staff can submit written statements to the Office of the Clerk on days in which the House is in session. For information on inserting General Leave statements, which appear in the House section of the Congressional Record, or extensions of remarks, which are placed in a separate section of the Record, Members and staff may access “ Congressional Record Inserts” at https://housenet.house.gov/legislative/research-and-references/transcripts-and-records/congressional-record-inserts.
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Table 1. Non-Legislative Debate in the House
As Commonly Practiced via Unanimous Consent of the House
Reserved
Through
Governing
Party
Form
Authoritiesa
Leadership?
Timingb
Duration
Parliamentary Phrases
At start of the legislative day
Member: Madam [or Mr.] Speaker, I ask
Speaker’s
and after the approval of the
No more than one
unanimous consent to address the House for
announced policy
Journal; occasional y after the
minute; by custom,
One-minute
one minute [and to revise and extend my
and by
conclusion of legislative
exceptions made for
speeches
no
remarks].
unanimous
business and before the start
the Speaker, majority
consent
of special-order speeches or
leader, and minority
Speaker: Without objection, the gentleman [or
at other times during the
leader
gentlewoman] is recognized for one minute.
daily session
Speaker: Pursuant to the order of the House of
Mondays-Thursdays, two
No more than five
____, the Chair wil now recognize Members
hours prior to the daily
minutes; by custom,
from lists submitted by the majority and
Morning-hour Unanimous
convening time or at another
exceptions made for
minority leaders for morning-hour debate. The
debate
consent
yes
time agreed to by the House;
the Speaker, majority
Chair recognizes the gentleman [or
not to extend beyond 10
leader, and minority
gentlewoman] from ____ for 5 minutes.
minutes prior to the
leader
designated convening time
Member: Madam [or Mr.] Speaker, I rise today to…
After the conclusion of legislative business and before
One hour or 30
Speaker: Under the Speaker’s announced policy
10 p.m.; four-hour period
minutes or increments thereof
of ____, the gentleman [or gentlewoman] from
Special-order
Speaker’s
yes
split evenly between parties;
during a four-hour
____ is recognized for ____ minutes.
speeches
announced policy
first two hours control ed by
period that may be
respective party leaders;
Member: Madam [or Mr.] Speaker, I rise today
prorated in order to
second two hours are split
to…
conclude at 10 p.m.
into 30-minute periods
Sources: House Practice; Congressional Record. Notes:
a. One-minute, special-order, and morning-hour speeches have developed as a unanimous consent practice in compliance with House rules, precedents, and the Speaker’s announced policies. The governing authorities identified in the table provide the format and requirements specific to the form of non -legislative debate. b. Non-legislative debate may be al owed on days in which the House is in session and at the discretion of the Speaker.
CRS-10
Non-Legislative Debate in the House
Author Information
Jane A. Hudiburg
Analyst on Congress and the Legislative Process
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress. Information in a CRS Report should n ot be relied upon for purposes other than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you wish to copy or otherwise use copyrighted material.
Congressional Research Service
R46626 · VERSION 1 · NEW
11 37
Table 1. Nonlegislative Debate in the House
As Commonly Practiced via Unanimous Consent of the House
Form
|
Governing Authoritiesa
Reserved Through Party Leadership?
|
Timingb
Duration
|
Parliamentary Phrases
|
|
One-minute speeches
|
Speaker's announced policy and by unanimous consent
|
no
|
At start of the legislative day and after the approval of the Journal; occasionally after the conclusion of legislative business and before the start of special-order speeches or at other times during the daily session
|
No more than one minute; by custom, exceptions made for the Speaker, majority leader, and minority leader
|
Member: Madam [or Mr.] Speaker, I ask unanimous consent to address the House for one minute [and to revise and extend my remarks].
Speaker: Without objection, the gentleman [or gentlewoman] is recognized for one minute.
|
|
Morning-hour debate
|
Unanimous consent
|
yes
|
Mondays-Thursdays, two hours prior to the daily convening time or at another time agreed to by the House; not to extend beyond 10 minutes prior to the designated convening time
|
No more than five minutes; by custom, exceptions made for the Speaker, majority leader, and minority leader
|
Speaker: Pursuant to the order of the House of ____, the Chair will now recognize Members from lists submitted by the majority and minority leaders for morning-hour debate. The Chair recognizes the gentleman [or gentlewoman] from ____ for 5 minutes.
Member: Madam [or Mr.] Speaker, I rise today to…
|
|
Special-order speeches
|
Speaker's announced policy
|
yes
|
After the conclusion of legislative business and before 10 p.m.; four-hour period split evenly between parties; first two hours controlled by respective party leaders; second two hours are split into 30-minute periods
|
One hour or 30 minutes or increments thereof during a four-hour period that may be prorated in order to conclude at 10 p.m.
|
Speaker: Under the Speaker's announced policy of ____, the gentleman [or gentlewoman] from ____ is recognized for ____ minutes.
Member: Madam [or Mr.] Speaker, I rise today to…
|
Sources: House Practice; Congressional Record.
Notes:
a. One-minute, special-order, and morning-hour speeches have developed as a unanimous consent practice in compliance with House rules, precedents, and the Speaker's announced policies. The governing authorities identified in the table provide the format and requirements specific to the form of nonlegislative debate.
b. Nonlegislative debate may be allowed on days in which the House is in session and at the discretion of the Speaker.
Footnotes
| 1.
|
Broadcast coverage made available under Rule V may not be used for campaign or commercial purposes. See clause 2(c) of Rule V for limitations on the use of audio and visual broadcasting and recording of House floor proceedings. U.S. Congress, House, Constitution, Jefferson's Manual and the Rules of the House of the United States One Hundred Nineteenth Congress (hereinafter House Manual), 118th Cong., 2nd sess., 118-187 (GPO, 2019), §684.
|
| 2.
|
John V. Sullivan et al., House Practice: A Guide to the Rules, Precedents, and Procedures of the House (GPO, 2024) (hereinafter House Practice), ch. 16, §50.
|
| 3.
|
Pursuant to clause 5 of House Rule I, the Speaker's rulings on questions of order are subject to the appeal of a Member or Delegate or the Resident Commissioner. Following the appeal, the House may vote to sustain or overturn the ruling. House Manual, §627.
|
| 4.
|
House Practice, ch. 46, §1.
|
| 5.
|
The rule does not specify what would be considered unparliamentary, but statements made by the chair indicate that general admonishments are not a sufficient offense if they do not identify individual Members. See CRS Report R45866, Words Taken Down: Calling Members to Order for Disorderly Language in the House, by Gail E. Baitinger.
|
6.
|
Clause 4, Rule XVII, House Manual, §§961, 962. See also CRS Report R45866, Words Taken Down: Calling Members to Order for Disorderly Language in the House, by Gail E. Baitinger.
| 7.
|
House Manual, §684.
|
8.
|
Congressional Record (January 3, 2025), p. H25.
| 9.
|
House Practice, ch. 10, §5.
|
| 10.
|
Congressional Record, vol. 81 (August 2, 1937), p. 8004.
|
| 11.
|
Congressional Record, vol. 91 (March 6, 1945), pp. 1788-1789.
|
| 12.
|
See Speaker's announced policy, Congressional Record, vol. 130 (August 8, 1984), p. 22963.
|
| 13.
|
House Manual, §950.
|
| 14.
|
House Practice, ch. 16, §50.
|
| 15.
|
The majority and minority whip notices may also state when and how many one-minute speeches will be allowed during a specified legislative day.
|
| 16.
|
Congressional Record (January 3, 2025), p. H25.
|
| 17.
|
House Manual, §950.
|
18.
|
Congressional Record (January 3, 2025), p. H25.
| 19.
|
House Manual, §950.
|
| 20.
|
House Manual, §950.
|
| 21.
|
House Manual, §950.
|
22.
|
House Practice, ch. 16, §45. On February 7, 2018, then-Minority Leader Nancy Pelosi delivered a one-minute speech that lasted eight hours and seven minutes, which set the record for the longest House floor speech in the modern era. This record was broken by then-Minority Leader Kevin McCarthy (8 hours and 32 minutes) on November 18, 2021, followed by Minority Leader Hakeem Jeffries (8 hours and 45 minutes) on July 3, 2025. See Addy Bink, "What Is a 'Magic Minute,' and Why Can It Last Several Hours?," The Hill, July 3, 2025, https://thehill.com/homenews/nexstar_media_wire/5383497-what-is-a-magic-minute-and-why-can-it-last-several-hours/; Sheryl Gay Stolberg, "Pelosi Held House Floor in Advocacy of 'Dreamers' for More Than 8 Hours," New York Times, February 7, 2018, https://www.nytimes.com/2018/02/07/us/politics/pelosi-dreamers-budget-deal.html; Clare Foran et al., "Kevin McCarthy Gives the Longest House Floor Speech in History Delaying Build Back Better Vote," CNN, November 19, 2021, https://www.cnn.com/2021/11/18/politics/build-back-better-house-vote; Micahel Gold and Matthew Mpoke Bigg, "Jeffries Breaks Record in Hourslong Speech Opposing Trump's Policy Bill," July 3, 2025, https://www.nytimes.com/2025/07/03/us/politics/hakeem-jeffries-house-speech-magic-minute-trump-bill.html.
| 23.
|
Unanimous consent agreement, Congressional Record (January 3, 2025), pp. H23-H24.
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| 24.
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For example, a Member might state, "I ask unanimous consent that when the House adjourns today, it adjourn to meet at noon on Monday next for morning-hour debate and 2 p.m. for legislative business;" Congressional Record (July 17, 2025), H3469. For information about House adjournments and setting the time to reconvene, see CRS Report R42977, Sessions, Adjournments, and Recesses of Congress, by Valerie Heitshusen.
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| 25.
|
At the start of the 119th Congress, the House agreed to a resolution determining the daily hour of meeting: H.Res. 6, fixing the daily hour of meeting of the first session of the 119th Congress.
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| 26.
|
House Practice, ch. 16, §50.
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| 27.
|
House Manual, §869.
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| 28.
|
House Practice, ch. 16, §50.
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| 29.
|
House Practice, ch. 16, §50; Congressional Record (January 3, 2025), p. H23.
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| 30.
|
In the 119th Congress, the Speaker's announced policies state that Members are to sign up with their leadership for special-order speeches at least one day prior to their special-order speeches but no earlier than one week in advance. Congressional Record (January 3, 2025), p. H25.
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| 31.
|
Congressional Record, vol. 130 (August 8, 1984), p. 22963.
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| 32.
|
Congressional Record (January 3, 2025), p. H25.
|
33.
|
Congressional Record (January 3, 2025), p. H25.
| 34.
|
House Practice, ch. 16, §50.
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| 35.
|
House Practice, ch. 16, §50. These circumstances include disorderly conduct. Congressional Record (January 3, 2025), p. H25.
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| 36.
|
Congressional Record (January 3, 2025), p. H25.
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| 37.
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To insert remarks into the Congressional Record, Members and staff can submit written statements to the Office of the Clerk on days in which the House is in session. For information on inserting General Leave statements, which appear in the House section of the Congressional Record, or extensions of remarks, which are placed in a separate section of the Record, Members and House staff may access "Congressional Record Inserts" at https://housenet.house.gov/page/4218?SearchId=0.
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