Parliamentary Reference Sources: House of Representatives

Changes from February 12, 2024 to April 30, 2024

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Parliamentary Reference Sources:
~~February 12~~April 30, 2024 , 2024
House of Representatives
Sarah B. Solomon
House procedures are based not only on the rules the chamber adopts at the start of each House procedures are based not only on the rules the chamber adopts at the start of each

Analyst on Congress Analyst on Congress
and Congress but also on constitutional mandates, published precedents, rulemaking statutes, Congress but also on constitutional mandates, published precedents, rulemaking statutes,
~~and~~ the Legislative Process the Legislative Process
procedural principles detailed in procedural principles detailed in Jefferson’s Manual, and informal practices. In addition, House , and informal practices. In addition, House

committee and party rules may influence House procedures. committee and party rules may influence House procedures.

Various reference sources contain the text of the different parliamentary authorities that establish Various reference sources contain the text of the different parliamentary authorities that establish
the parameters by which the House conducts its business. These resources provide insight into the daily proceedings of the the parameters by which the House conducts its business. These resources provide insight into the daily proceedings of the
House, and it may be necessary to review a combination of sources to understand specific procedural situations. House, and it may be necessary to review a combination of sources to understand specific procedural situations.
Among the resources available to Members and their staff, four may be especially useful to understanding and following Among the resources available to Members and their staff, four may be especially useful to understanding and following
House procedure: House procedure: House Practice, the , the House Manual, , Deschler’s Precedents, and resolutions containing “special rules” from , and resolutions containing “special rules” from
the House Committee on Rules. the House Committee on Rules.
House Practice presents information about contemporary procedure in the House. It includes chapters that summarize House presents information about contemporary procedure in the House. It includes chapters that summarize House
practice on topics such as amendments, points of order, and voting. practice on topics such as amendments, points of order, and voting. House Practice is often a good place to begin research is often a good place to begin research
into House procedure because it contains numerous references to other procedural authorities such as the rules and selected into House procedure because it contains numerous references to other procedural authorities such as the rules and selected
precedents. It can be found via precedents. It can be found via govinfo.gov, a website of the Government Publishing Office, at https://www.govinfo.gov/, a website of the Government Publishing Office, at https://www.govinfo.gov/
collection/house-practice?path=/GPO/House%20Practice, or through collection/house-practice?path=/GPO/House%20Practice, or through Congress.gov, a website of the Library of Congress, at a website of the Library of Congress, at
https://www.congress.gov/help/house-of-representatives. https://www.congress.gov/help/house-of-representatives.
The The House Manual sets forth the main procedural authorities of the House, including the Constitution, portions of sets forth the main procedural authorities of the House, including the Constitution, portions of Jefferson’s
Manual, the adopted rules of the House, and provisions of statutes with procedural effects. The different authorities are the adopted rules of the House, and provisions of statutes with procedural effects. The different authorities are
accompanied by the Parliamentarian’s annotations, which include citations to precedents interpreting those provisions. The accompanied by the Parliamentarian’s annotations, which include citations to precedents interpreting those provisions. The
current version of the current version of the House Manual can be accessed through can be accessed through govinfo.gov at https://www.govinfo.gov/content/pkg/HMAN- at https://www.govinfo.gov/content/pkg/HMAN-
118/pdf/HMAN-118.pdf or via 118/pdf/HMAN-118.pdf or via Congress.gov at https://www.congress.gov/help/house-of-representatives. at https://www.congress.gov/help/house-of-representatives.
Deschler’s Precedents presents and summarizes significant precedents of the House established at various points of time presents and summarizes significant precedents of the House established at various points of time
since 1936since 1936. This series of 18 volumes often provides the text of the procedural exchange during which each precedent was This series of 18 volumes often provides the text of the procedural exchange during which each precedent was
established. established. Deschler’s Precedents is available through is available through govinfo.gov at https://www.govinfo.gov/collection/precedents-of-the-at https://www.govinfo.gov/collection/precedents-of-the-
house?path=/gpo/Precedents%20of%20the%20U.S.%20House%20of%20Representatives/010-Deschler%27s%20Precedents house?path=/gpo/Precedents%20of%20the%20U.S.%20House%20of%20Representatives/010-Deschler%27s%20Precedents
and and Congress.gov at https://www.congress.gov/help/house-of-representatives. at https://www.congress.gov/help/house-of-representatives.
Following the completion of Following the completion of Deschler’s Precedents, the Office of the Parliamentarian began to publish a new series of House , the Office of the Parliamentarian began to publish a new series of House
precedents, titled precedents, titled Precedents of the United States House of Representatives. The series will focus on contemporary . The series will focus on contemporary
developments in House procedure. The first three volumes are available through developments in House procedure. The first three volumes are available through govinfo.gov at https://www.govinfo.gov/at https://www.govinfo.gov/
collection/precedents-of-the-house?path=/gpo/Precedents%20of%20the%20U.S.%20House%20of%20Representatives/ andcollection/precedents-of-the-house?path=/gpo/Precedents%20of%20the%20U.S.%20House%20of%20Representatives/ and
Congress.gov atat https://www.congress.gov/help/house-of-representatives. https://www.congress.gov/help/house-of-representatives.
The House often adopts simple resolutions (“special rules”) that establish the floor procedures for considering one or more The House often adopts simple resolutions (“special rules”) that establish the floor procedures for considering one or more
measures. These special rules may, for example, identify which amendments to a measure are in order and who may offer measures. These special rules may, for example, identify which amendments to a measure are in order and who may offer
those amendments. Resolutions containing these special rules are reported from the Committee on Rules and made available those amendments. Resolutions containing these special rules are reported from the Committee on Rules and made available
on their website at https://rules.house.gov/, and through on their website at https://rules.house.gov/, and through Congress.gov at https://www.congress.gov/. at https://www.congress.gov/.
House rules require each standing committee to adopt its own rules of procedure. The House Committee on Rules prepares a House rules require each standing committee to adopt its own rules of procedure. The House Committee on Rules prepares a
catalog of all House committee rules for each Congress titled catalog of all House committee rules for each Congress titled Rules Adopted by the Committees of the House of
Representatives. The version prepared for the 118th Congress is available via . The version prepared for the 118th Congress is available via govinfo.gov at https://www.govinfo.gov/ at https://www.govinfo.gov/
content/pkg/CPRT-118HPRT53578/pdf/CPRT-118HPRT53578.pdf. content/pkg/CPRT-118HPRT53578/pdf/CPRT-118HPRT53578.pdf.

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Contacts
Author Information ........................................................................................................................ 22

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Introduction
House procedures are not based solely on the rules the chamber adopts at the beginning of each House procedures are not based solely on the rules the chamber adopts at the beginning of each
new Congress. Rather, the foundations of House parliamentary procedure also include new Congress. Rather, the foundations of House parliamentary procedure also include
constitutional mandates, parliamentary principles included in constitutional mandates, parliamentary principles included in Jefferson’s Manual, rulemaking , rulemaking
statutes, published precedents, committee rules, party rules, and informal practices. statutes, published precedents, committee rules, party rules, and informal practices.
Various reference sources specify how and when the different procedural authorities of the House Various reference sources specify how and when the different procedural authorities of the House
govern particular parliamentary circumstances, and, together, these sources detail the parameters govern particular parliamentary circumstances, and, together, these sources detail the parameters
by which the House conducts its business. This report identifies and describes documents that by which the House conducts its business. This report identifies and describes documents that
provide information about these parliamentary authorities, beginning with official sources such as provide information about these parliamentary authorities, beginning with official sources such as
the the House Manual and several volumes of published precedents. These reference sources set forth and several volumes of published precedents. These reference sources set forth
authoritative statements of House rules, procedures, and precedents and may be cited by authoritative statements of House rules, procedures, and precedents and may be cited by
Members when raising a point of order or defending against one. Members when raising a point of order or defending against one.
Before describing the individual reference sources, this report reviews some principles of House Before describing the individual reference sources, this report reviews some principles of House
procedure that may inform how the information in these sources is used and evaluated. procedure that may inform how the information in these sources is used and evaluated.
The final sections of the report review additional parliamentary authorities, such as the rules of The final sections of the report review additional parliamentary authorities, such as the rules of
the House’s party conferences and several publications by House committees. Although these the House’s party conferences and several publications by House committees. Although these
resources are not official parliamentary authorities of the House, they do provide information on resources are not official parliamentary authorities of the House, they do provide information on
House proceedings and may include references to official authorities. House proceedings and may include references to official authorities.
Text boxes throughout the report provide information on how to consult a source—or group of Text boxes throughout the report provide information on how to consult a source—or group of
sources—with an emphasis on online access. This report aims to present access points to sources—with an emphasis on online access. This report aims to present access points to
reference sources that are relevant for Members and congressional staff and does not constitute an reference sources that are relevant for Members and congressional staff and does not constitute an
exhaustive list of websites and other locations where these references can be found. exhaustive list of websites and other locations where these references can be found.
Three appendixes supplement the information on parliamentary reference sources provided Three appendixes supplement the information on parliamentary reference sources provided
throughout the reportthroughout the report. Appendix A presents annotated excerpts from four of the reference sources presents annotated excerpts from four of the reference sources
discussed in this report (the discussed in this report (the House Manual, , House Practice, , Deschler’s Precedents, and , and Cannon’s
Precedents)). Appendix B includes a selected list of CRS products on House procedure. Finally, includes a selected list of CRS products on House procedure. Finally,
Appendix C provides an overview of the two primary websites through which many of the provides an overview of the two primary websites through which many of the
resources included in this report can be accessed. resources included in this report can be accessed.
This report assumes a basic familiarity with House procedures. Official guidance on House This report assumes a basic familiarity with House procedures. Official guidance on House
parliamentary procedure is available from the Office of the House Parliamentarian. CRS staff can parliamentary procedure is available from the Office of the House Parliamentarian. CRS staff can
also assist in clarifying House rules and procedures. also assist in clarifying House rules and procedures.
Principles of House Parliamentary Procedure
The House exercises the regulations detailed in its parliamentary authorities in accordance with The House exercises the regulations detailed in its parliamentary authorities in accordance with
several principles that remain generally applicable across diverse parliamentary situations: (1) several principles that remain generally applicable across diverse parliamentary situations: (1)
House procedure is governed by multiple authorities; (2) the House has the constitutional power House procedure is governed by multiple authorities; (2) the House has the constitutional power
to make its own rules of procedure; (3) House rules are generally not self-enforcing; (4) the to make its own rules of procedure; (3) House rules are generally not self-enforcing; (4) the
House follows its rules and precedents; and (5) the House adheres to some informal practices. House follows its rules and precedents; and (5) the House adheres to some informal practices.
Each of these principles is discussed below. Each of these principles is discussed below.
House Procedures Are Determined by Multiple Authorities
Although the rules of the House may be the most obvious authority of House parliamentary Although the rules of the House may be the most obvious authority of House parliamentary
procedure, they are not the only one. Other sources of House procedure include procedure, they are not the only one. Other sources of House procedure include
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• requirements imposed by the Constitution; • requirements imposed by the Constitution;
• precedents of the House; • precedents of the House;
• statutory provisions that establish procedural requirements; • statutory provisions that establish procedural requirements;
• rules of procedure adopted by each committee; • rules of procedure adopted by each committee;
• rules of the House party conferences; and • rules of the House party conferences; and
• informal practices that the House adheres to by custom. • informal practices that the House adheres to by custom.
In order to understand House procedure, it may be necessary to review more than one source of In order to understand House procedure, it may be necessary to review more than one source of
authority. Consider, for example, that House rules prohibit Members from offering amendments authority. Consider, for example, that House rules prohibit Members from offering amendments
to a measure under consideration if they are not germane to that measure. The rules, however, do to a measure under consideration if they are not germane to that measure. The rules, however, do
not explain what constitutes a germane amendment. Instead, several tests for determining not explain what constitutes a germane amendment. Instead, several tests for determining
germaneness were established through practice, and these are detailed in reference sources that germaneness were established through practice, and these are detailed in reference sources that
discuss House precedents. discuss House precedents.
The House Has the Constitutional Authority to Determine Its Rules
Article I of the Constitution gives the House the authority to determine its rules of procedure. Article I of the Constitution gives the House the authority to determine its rules of procedure.
This constitutional rulemaking authority affects House procedure in two different ways. First, This constitutional rulemaking authority affects House procedure in two different ways. First,
except in the case of requirements prescribed by the Constitution itself, the House can determine except in the case of requirements prescribed by the Constitution itself, the House can determine
what rules will govern its internal procedures. The House exercises this power at the beginning of what rules will govern its internal procedures. The House exercises this power at the beginning of
each Congress when it adopts the chamber’s standing rules. The Constitution grants the House the each Congress when it adopts the chamber’s standing rules. The Constitution grants the House the
authority to adopt its standing rules without the approval of the Senate or the President. Thus, the authority to adopt its standing rules without the approval of the Senate or the President. Thus, the
House rules are adopted through simple resolutions, which are agreed to by the House alone. House rules are adopted through simple resolutions, which are agreed to by the House alone.
The House also uses its rulemaking power in this sense when it adopts “special rules” reported by The House also uses its rulemaking power in this sense when it adopts “special rules” reported by
the Committee on Rules and when it enacts rulemaking statutes (both of which are described in the Committee on Rules and when it enacts rulemaking statutes (both of which are described in
detail below). A special rule defines a specific procedure for floor consideration of one or more detail below). A special rule defines a specific procedure for floor consideration of one or more
measures specified in the resolution. A rulemaking statute is a law that establishes procedures for measures specified in the resolution. A rulemaking statute is a law that establishes procedures for
House action on a specific class of measures.1 Special rules and rulemaking statutes are created House action on a specific class of measures.1 Special rules and rulemaking statutes are created
through the House’s constitutional rulemaking authority, so they have the same authority as the through the House’s constitutional rulemaking authority, so they have the same authority as the
standing rules of the House.2 standing rules of the House.2
Second, the House can determine when to adjust its adopted rules, including rulemaking statutes, Second, the House can determine when to adjust its adopted rules, including rulemaking statutes,
to meet specific parliamentary circumstances. In practical terms, this principle allows the House to meet specific parliamentary circumstances. In practical terms, this principle allows the House
to violate its adopted rules by unanimous consent or to suspend the rules for consideration of a to violate its adopted rules by unanimous consent or to suspend the rules for consideration of a
measure by a two-thirds vote.3 Moreover, by a simple majority vote, the House can adopt a measure by a two-thirds vote.3 Moreover, by a simple majority vote, the House can adopt a
special rule to waive points of order that Members could normally raise under the House rules or special rule to waive points of order that Members could normally raise under the House rules or
a rulemaking statute. a rulemaking statute.
House Rules Are Generally Not Self-Enforcing
The rules of the House, as well as other authorities that have the force of chamber rules (such as The rules of the House, as well as other authorities that have the force of chamber rules (such as
rulemaking statutes and special rules), are normally enforced when an individual Member raises a rulemaking statutes and special rules), are normally enforced when an individual Member raises a

1 For example, the Congressional Budget Act of 1974 contains rulemaking provisions that, among other things, specify 1 For example, the Congressional Budget Act of 1974 contains rulemaking provisions that, among other things, specify
the content of the budget resolution and set terms for its consideration. the content of the budget resolution and set terms for its consideration.
2 Special rules are adopted through simple resolutions approved by the House alone, while rulemaking statutes—like all 2 Special rules are adopted through simple resolutions approved by the House alone, while rulemaking statutes—like all
statutes—take effect only through agreement between both chambers and signature by the President (or a successful statutes—take effect only through agreement between both chambers and signature by the President (or a successful
veto override). veto override).
3 For more information on suspension of the rules in the House, see CRS Report 98-314, 3 For more information on suspension of the rules in the House, see CRS Report 98-314, Suspension of the Rules in the
House: Principal Features, by Elizabeth Rybicki. , by Elizabeth Rybicki.
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point of order. A point of order is a claim, stated by a Member from the floor, that the House is point of order. A point of order is a claim, stated by a Member from the floor, that the House is
violating or about to violate some rule, precedent, or other procedural authority of the House.4 violating or about to violate some rule, precedent, or other procedural authority of the House.4
When a point of order is raised, the chair (the Speaker when in the House proper; the chair when When a point of order is raised, the chair (the Speaker when in the House proper; the chair when
in the Committee of the Whole) normally rules on its validity and may provide an explanation of in the Committee of the Whole) normally rules on its validity and may provide an explanation of
the parliamentary rationale behind the ruling.5 As the next section describes, the ruling of the the parliamentary rationale behind the ruling.5 As the next section describes, the ruling of the
chair becomes a new precedent of the House. chair becomes a new precedent of the House.
The chair may also take the initiative to enforce House rules (or another procedural authority) by The chair may also take the initiative to enforce House rules (or another procedural authority) by
ruling an action out of order or by making an announcement regarding proper procedure. For ruling an action out of order or by making an announcement regarding proper procedure. For
example, the chair might remind Members to follow the rules of decorum during debate. In most example, the chair might remind Members to follow the rules of decorum during debate. In most
instances, however, the chair does not call attention to violations of House rules. In such instances, however, the chair does not call attention to violations of House rules. In such
circumstances, unless a Member raises a point of order, the House can proceed in ways that circumstances, unless a Member raises a point of order, the House can proceed in ways that
violate its rules.6 violate its rules.6
Parliamentary actions taken on the basis of an informal practice, or pursuant to the rules of a Parliamentary actions taken on the basis of an informal practice, or pursuant to the rules of a
House committee or party caucus or conference, are not enforceable on the House floor. While House committee or party caucus or conference, are not enforceable on the House floor. While
these authorities may affect House procedure, they do not have the same standing as House rules these authorities may affect House procedure, they do not have the same standing as House rules
because they are not produced through an exercise of the chamber’s constitutional rulemaking because they are not produced through an exercise of the chamber’s constitutional rulemaking
authority. Committee rules can be enforced only in the committee that adopts them, and caucus or authority. Committee rules can be enforced only in the committee that adopts them, and caucus or
conference rules are enforced only by one party. Informal practices evolve over the years to conference rules are enforced only by one party. Informal practices evolve over the years to
become customary, but they are unenforceable. become customary, but they are unenforceable.
The House Follows Its Precedents
The published precedents of the House describe how the chamber has interpreted and applied its The published precedents of the House describe how the chamber has interpreted and applied its
own rules over time. Most precedents are established when the chair rules on a point of order. own rules over time. Most precedents are established when the chair rules on a point of order.
Any Member could appeal a ruling of the chair to the House itself, which would then decide the Any Member could appeal a ruling of the chair to the House itself, which would then decide the
question by a majority vote. This proceeding would constitute an exercise of the House’s question by a majority vote. This proceeding would constitute an exercise of the House’s
authority over its own rules, and the decision of the House would set a precedent for that authority over its own rules, and the decision of the House would set a precedent for that
particular parliamentary circumstance. In practice, however, the House infrequently appeals the particular parliamentary circumstance. In practice, however, the House infrequently appeals the
chair’s ruling, and even when it does, it seldom reverses the chair. In fact, when there is an appeal chair’s ruling, and even when it does, it seldom reverses the chair. In fact, when there is an appeal
of the chair’s ruling, the majority usually votes at once to lay the appeal on the table, an action of the chair’s ruling, the majority usually votes at once to lay the appeal on the table, an action
that has the effect of confirming the ruling of the chair.7 Precedents can also be created when the that has the effect of confirming the ruling of the chair.7 Precedents can also be created when the
chair responds to a parliamentary inquiry. chair responds to a parliamentary inquiry.
Precedents are analogous to case law in their effect. Just as attorneys in court cite previous Precedents are analogous to case law in their effect. Just as attorneys in court cite previous
judicial decisions to support their arguments, Members cite House precedents to support their judicial decisions to support their arguments, Members cite House precedents to support their
points of order or to defend against one. Similarly, the chair often supports a ruling by citing the points of order or to defend against one. Similarly, the chair often supports a ruling by citing the
decisions of his or her predecessors. Historically, the House follows its precedents. decisions of his or her predecessors. Historically, the House follows its precedents.
Precedents do not carry equal weight. Those based on the chair’s disposition of points of order or Precedents do not carry equal weight. Those based on the chair’s disposition of points of order or
on a decision of the House by majority vote hold more weight than those based on the chair’s on a decision of the House by majority vote hold more weight than those based on the chair’s
responses to parliamentary inquiries. More recent precedents tend to hold greater weight than responses to parliamentary inquiries. More recent precedents tend to hold greater weight than
earlier ones, and a precedent that is part of an established pattern holds more weight than an earlier ones, and a precedent that is part of an established pattern holds more weight than an

4 See CRS Report 98-307, 4 See CRS Report 98-307, Points of Order, Rulings, and Appeals in the House of Representatives, by Valerie , by Valerie
Heitshusen. Heitshusen.
5 The chair will not rule on a point of order asserting a violation of constitutional requirements, for the chair has 5 The chair will not rule on a point of order asserting a violation of constitutional requirements, for the chair has
authority only to interpret the adopted rules of the House, not the Constitution. According to practice, when authority only to interpret the adopted rules of the House, not the Constitution. According to practice, when
constitutional questions are raised, they will be settled by a vote of the House (see constitutional questions are raised, they will be settled by a vote of the House (see House Manual, §628). , §628).
6 See 6 See House Practice: A Guide to the Rules, Precedents, and Procedures of the House, ch. 37, §2. , ch. 37, §2.
7 See 7 See House Practice, ch. 3, §5. , ch. 3, §5.
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isolated exception. Moreover, all precedents must be evaluated in the historical context of the isolated exception. Moreover, all precedents must be evaluated in the historical context of the
rules and practices at the time they were established. Because of the need to consider these rules and practices at the time they were established. Because of the need to consider these
various principles, Members seeking precedents to support or oppose a certain procedural action various principles, Members seeking precedents to support or oppose a certain procedural action
might wish to seek the official advice of the Parliamentarian of the House. might wish to seek the official advice of the Parliamentarian of the House.
The House Adheres to Many Informal Practices
Some procedural actions are based on customs that have evolved over time without formal Some procedural actions are based on customs that have evolved over time without formal
adoption. These informal practices are not mandated by any authoritative statement, although adoption. These informal practices are not mandated by any authoritative statement, although
they may be described in documents that compile House precedents. Informal practices cannot be they may be described in documents that compile House precedents. Informal practices cannot be
enforced through a point of order, but they are rarely challenged on the House floor. enforced through a point of order, but they are rarely challenged on the House floor.
Contemporary examples of informal practices in the House include the Speaker’s recognition of Contemporary examples of informal practices in the House include the Speaker’s recognition of
Members for one-minute and special order speeches and the majority floor manager’s yielding of Members for one-minute and special order speeches and the majority floor manager’s yielding of
half of the debate time to the minority during floor consideration of a special rule. half of the debate time to the minority during floor consideration of a special rule.
The House Manual and the Authorities It Contains
The Government Publishing Office (GPO) issues a new edition of the The Government Publishing Office (GPO) issues a new edition of the House Manual (the formal (the formal
title of which is title of which is Constitution, Jefferson’s Manual, and Rules of the House of Representatives) )
each Congress.8 The each Congress.8 The House Manual compiles in one volume the text of the principal compiles in one volume the text of the principal
parliamentary sources that have authoritative force in House proceedings: the Constitution of the parliamentary sources that have authoritative force in House proceedings: the Constitution of the
United States, portions of United States, portions of Jefferson’s Manual of Parliamentary Practice, the adopted Rules of the , the adopted Rules of the
House, and rulemaking statutes—including those governing the congressional budget process and House, and rulemaking statutes—including those governing the congressional budget process and
those containing congressional disapproval procedures. These sources are accompanied by the those containing congressional disapproval procedures. These sources are accompanied by the
annotations of the Parliamentarian of the House that summarize precedents and practices related annotations of the Parliamentarian of the House that summarize precedents and practices related
to each provision. to each provision.
Features of the House Manual
Organization and Indexing
The The House Manual is organized in numbered sections that run throughout the document in a is organized in numbered sections that run throughout the document in a
single sequence.9 The section numbers are listed at the top of each page in bold type and normally single sequence.9 The section numbers are listed at the top of each page in bold type and normally
remain constant from edition to edition (which facilitates citation across editions).10 Citations to remain constant from edition to edition (which facilitates citation across editions).10 Citations to
the the House Manual are given by section number rather than page number. are given by section number rather than page number.
The The House Manual index also provides citations by section number. This index presents major index also provides citations by section number. This index presents major
topics in capital letters, under which are lists of related topics and subtopics. The index should be topics in capital letters, under which are lists of related topics and subtopics. The index should be
thoroughly examined to find all pertinent citations. For example, information on motions to thoroughly examined to find all pertinent citations. For example, information on motions to
suspend the rules is indexed under two subject headings: “Rules, suspension of” and “Suspension suspend the rules is indexed under two subject headings: “Rules, suspension of” and “Suspension
of Rules.” of Rules.”

8 The edition for each recent Congress bears a House document number from the preceding Congress, because the 8 The edition for each recent Congress bears a House document number from the preceding Congress, because the
House authorizes it during that Congress. For example, the House authorizes it during that Congress. For example, the House Manual for the 118th for the 118th ~~Congress~~Cong. is designated “H.Doc. is designated “H.Doc.
117-161.” It is sometimes referred to as “Jefferson’s Manual.” This colloquial reference, however, is a misnomer, for 117-161.” It is sometimes referred to as “Jefferson’s Manual.” This colloquial reference, however, is a misnomer, for
the procedural manual prepared by Thomas Jefferson constitutes only one element of the volume. the procedural manual prepared by Thomas Jefferson constitutes only one element of the volume.
9 In the 9 In the House Manual for the 118th for the 118th ~~Congress~~Cong., there are occasional gaps in the sequence of numbered sections. , there are occasional gaps in the sequence of numbered sections.
10 When the House rules were recodified in the 106th 10 When the House rules were recodified in the 106th ~~Congress~~Cong., their number was reduced from 52 to 29. As a result, , their number was reduced from 52 to 29. As a result,
section numbers necessarily changed in the portion of the section numbers necessarily changed in the portion of the House Manual devoted to the rules. devoted to the rules.
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Parliamentarian’s Annotations
Annotations prepared by the Parliamentarian of the House appear throughout the Annotations prepared by the Parliamentarian of the House appear throughout the House Manual
in small print. These annotations, often referred to as the “Parliamentarian’s Notes,” follow the in small print. These annotations, often referred to as the “Parliamentarian’s Notes,” follow the
text of the procedural authority to which they apply. The notes briefly describe the history of each text of the procedural authority to which they apply. The notes briefly describe the history of each
respective provision and provide useful information about its contemporary application—often by respective provision and provide useful information about its contemporary application—often by
including parenthetical citations to relevant resources, such as compilations of House precedents including parenthetical citations to relevant resources, such as compilations of House precedents
(discussed below) and the (discussed below) and the Congressional Record. .
The Parliamentarian’s discussion of precedents in these annotations has great practical value for The Parliamentarian’s discussion of precedents in these annotations has great practical value for
several reasons. First, it allows the reader to see the relationship between specific parliamentary several reasons. First, it allows the reader to see the relationship between specific parliamentary
authorities and the precedents that explain their relevance to House proceedings. Second, because authorities and the precedents that explain their relevance to House proceedings. Second, because
the discussion is updated each time the the discussion is updated each time the House Manual is published, the notes include precedents is published, the notes include precedents
that are not included in earlier compilations of precedent. Lastly, the citations (provided in that are not included in earlier compilations of precedent. Lastly, the citations (provided in
parentheses) can be a time-saving research tool for readers seeking precedents related to a parentheses) can be a time-saving research tool for readers seeking precedents related to a
specific clause of the House rules or the other parliamentary authorities included in the specific clause of the House rules or the other parliamentary authorities included in the House
Manual. .
Summary of Changes to House Rules
A summary that covers the most substantive changes in House rules adopted since the previous A summary that covers the most substantive changes in House rules adopted since the previous
edition normally appears in the preface to the edition normally appears in the preface to the House Manual. .
House Manual (and the Authorities It Contains)
U.S. Congress, House, U.S. Congress, House, Constitution, Jefferson’s Manual, and Rules of the House of Representatives of the United States,
One Hundred Eighteenth Congress, H.Doc. 117-161, 117th Cong., 2nd sess., [compiled by] Jason A. Smith, , H.Doc. 117-161, 117th Cong., 2nd sess., [compiled by] Jason A. Smith,
Parliamentarian (Washington: GPO, 2023). Parliamentarian (Washington: GPO, 2023).
Online: The The House Manual can be accessed via can be accessed via govinfo.gov, a website of the GPO, at https://www.govinfo.gov/, a website of the GPO, at https://www.govinfo.gov/
content/pkg/HMAN-118/pdf/HMAN-118.pdf. The GPO version is also accessible through the House resources content/pkg/HMAN-118/pdf/HMAN-118.pdf. The GPO version is also accessible through the House resources
page of page of Congress.gov at https://www.congress.gov/help/house-of-representatives under the heading “Rules, at https://www.congress.gov/help/house-of-representatives under the heading “Rules,
Precedents, and Procedures.” Precedents, and Procedures.”
Print: When issued, the When issued, the House Manual is distributed to House Member and committee offices. It is also available is distributed to House Member and committee offices. It is also available
for reference in the House Library (292 Cannon) and the La Fol ette Congressional Reading Room (202 Madison). for reference in the House Library (292 Cannon) and the La Fol ette Congressional Reading Room (202 Madison).
(This reading room is reserved for use by Members of Congress, their families, and their staff. Staff should call (This reading room is reserved for use by Members of Congress, their families, and their staff. Staff should call
ahead to confirm availability of the ahead to confirm availability of the House Manual).).
The Constitution
The U.S. Constitution imposes several procedural requirements on the House. For example, The U.S. Constitution imposes several procedural requirements on the House. For example,
Article I, Section 5, grants the House the authority to adopt its own rules, requires the House to Article I, Section 5, grants the House the authority to adopt its own rules, requires the House to
keep and publish an official journal of its proceedings, mandates the presence of a quorum to keep and publish an official journal of its proceedings, mandates the presence of a quorum to
conduct business, and requires that a yea and nay vote be ordered upon the request of one-fifth of conduct business, and requires that a yea and nay vote be ordered upon the request of one-fifth of
the Members present. The the Members present. The House Manual presents the text of the Constitution (including presents the text of the Constitution (including
amendments) with annotations by the Parliamentarian detailing how the House and the courts amendments) with annotations by the Parliamentarian detailing how the House and the courts
have interpreted and applied certain constitutional provisions in practice. have interpreted and applied certain constitutional provisions in practice.
Jefferson’s Manual
House Rule XXIX, which dates from 1837, states that “the rules of parliamentary practice House Rule XXIX, which dates from 1837, states that “the rules of parliamentary practice
comprised by comprised by Jefferson’s Manual shall govern the House in all cases to which they are applicable shall govern the House in all cases to which they are applicable
and in which they are not inconsistent with the Rules and orders of the House.” and in which they are not inconsistent with the Rules and orders of the House.”
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Thomas Jefferson wrote this manual, the full title of which is Thomas Jefferson wrote this manual, the full title of which is A Manual of Parliamentary
Practice for the Use of the Senate of the United States, when he served as the Vice President and, , when he served as the Vice President and,
hence, President of the Senate from 1797 to 1801.11 Based largely on the practice of the British hence, President of the Senate from 1797 to 1801.11 Based largely on the practice of the British
House of Commons in the late 18th century,House of Commons in the late 18th century, Jefferson’s Manual is a statement of parliamentary is a statement of parliamentary
law and the philosophy behind various parliamentary actions. law and the philosophy behind various parliamentary actions.
The The House Manual incorporates only those sections of incorporates only those sections of Jefferson’s Manual that apply to House that apply to House
procedure. The annotations by the Parliamentarian explain whether and how practices described procedure. The annotations by the Parliamentarian explain whether and how practices described
in in Jefferson’s Manual relate to House procedure today. These annotations demonstrate that some relate to House procedure today. These annotations demonstrate that some
important parliamentary procedures, such as those governing debate and the consideration of important parliamentary procedures, such as those governing debate and the consideration of
amendments, are based, in part, on practices established by amendments, are based, in part, on practices established by Jefferson’s Manual. .
Rules of the House
The House approves a simple resolution at the start of each Congress adopting the rules of the The House approves a simple resolution at the start of each Congress adopting the rules of the
House for that Congress.12 The resolution usually provides for the re-adoption of the rules of the House for that Congress.12 The resolution usually provides for the re-adoption of the rules of the
previous House with specified amendments. previous House with specified amendments.
The The House Manual presents the rules of the House, along with the Parliamentarian’s annotations presents the rules of the House, along with the Parliamentarian’s annotations
for each clause. These annotations identify changes to House rules since the last Congress, as for each clause. These annotations identify changes to House rules since the last Congress, as
well as citations to precedents related to the specific clause. well as citations to precedents related to the specific clause.
In addition, the text of the House rules is published early in each Congress by the Clerk in an In addition, the text of the House rules is published early in each Congress by the Clerk in an
unnumbered print. This document, often called the “Clerk’s Print,” incorporates any rules unnumbered print. This document, often called the “Clerk’s Print,” incorporates any rules
changes adopted by the House at the beginning of a new Congress and is ordinarily the first changes adopted by the House at the beginning of a new Congress and is ordinarily the first
available document containing the text of House rules as amended.13 The available document containing the text of House rules as amended.13 The Congressional Record
of House proceedings on the resolution adopting the rules includes the text of the amendments.14 of House proceedings on the resolution adopting the rules includes the text of the amendments.14
Procedural Provisions of Statute
Article I of the Constitution grants each chamber of Congress authority over its own rules. This Article I of the Constitution grants each chamber of Congress authority over its own rules. This
permits the House to establish internal procedural regulations by adopting resolutions.15 permits the House to establish internal procedural regulations by adopting resolutions.15
Nevertheless, the House sometimes institutes procedures through provisions included in statutory Nevertheless, the House sometimes institutes procedures through provisions included in statutory
measures (bills and joint resolutions), which take effect only through agreement between both measures (bills and joint resolutions), which take effect only through agreement between both
chambers and signature by the President (or a successful veto override). chambers and signature by the President (or a successful veto override).
These procedures are created through an exercise of each chamber’s constitutional rulemaking These procedures are created through an exercise of each chamber’s constitutional rulemaking
power and have the same standing as House and Senate rules. A statute that contains “rulemaking power and have the same standing as House and Senate rules. A statute that contains “rulemaking
provisions,” in this sense, often incorporates a section titled “Exercise of Rulemaking Power.” provisions,” in this sense, often incorporates a section titled “Exercise of Rulemaking Power.”
This section asserts the rulemaking authority of each chamber by declaring that the pertinent This section asserts the rulemaking authority of each chamber by declaring that the pertinent
provisions “shall be considered as part of the rules of each House” and are subject to being provisions “shall be considered as part of the rules of each House” and are subject to being

11 Although this manual was originally intended for use in the U.S. Senate, the Senate does not treat it as an authority 11 Although this manual was originally intended for use in the U.S. Senate, the Senate does not treat it as an authority
on its own procedure. on its own procedure.
12 The House may adopt other changes by approving a resolution during the course of a Congress. 12 The House may adopt other changes by approving a resolution during the course of a Congress.
13 The “Clerk’s Print” of the adopted House rules for the 118th 13 The “Clerk’s Print” of the adopted House rules for the 118th ~~Congress~~Cong. is available on the website of the House is available on the website of the House
Committee on Rules at https://rules.house.gov/sites/republicans.rules118.house.gov/files/documents/Committee on Rules at https://rules.house.gov/sites/republicans.rules118.house.gov/files/documents/
Rules%20and%20Resources/118-House-Rules-Clerk.pdf. Rules%20and%20Resources/118-House-Rules-Clerk.pdf.
14 For the text of H.Res. 5, which contains the amendments to the rules adopted for the 118th 14 For the text of H.Res. 5, which contains the amendments to the rules adopted for the 118th ~~Congress~~Cong., see the , see the
Congressional Record, daily edition, vol. 169 (January 9, 2023), pp. H51-, daily edition, vol. 169 (January 9, 2023), pp. H51-60H60. .
15 This includes simple resolutions (e.g., special rules) and concurrent resolutions (e.g., budget resolutions), both of 15 This includes simple resolutions (e.g., special rules) and concurrent resolutions (e.g., budget resolutions), both of
which are discussed below. which are discussed below.
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changed “in the same manner ... as in the case of any other rule of such House”—that is, for changed “in the same manner ... as in the case of any other rule of such House”—that is, for
example, by adoption of a simple resolution.16 example, by adoption of a simple resolution.16
In the House, statutory rulemaking provisions are principally of three kinds: (1) those derived In the House, statutory rulemaking provisions are principally of three kinds: (1) those derived
from legislative reorganization acts, (2) those establishing expedited procedures for the from legislative reorganization acts, (2) those establishing expedited procedures for the
consideration of specific classes of measures, and (3) those derived from the Congressional consideration of specific classes of measures, and (3) those derived from the Congressional
Budget Act and related statutes governing the budget process. The Budget Act and related statutes governing the budget process. The House Manual includes includes
provisions from all three kinds of rulemaking statute with annotations by the Parliamentarian. provisions from all three kinds of rulemaking statute with annotations by the Parliamentarian.
Legislative Reorganization Acts
The major legislative reorganization acts that contain provisions currently regulating House The major legislative reorganization acts that contain provisions currently regulating House
procedure are the Legislative Reorganization Act of 1946 (P.L. 79-601, 60 Stat. 812) and the procedure are the Legislative Reorganization Act of 1946 (P.L. 79-601, 60 Stat. 812) and the
Legislative Reorganization Act of 1970 (P.L. 91-510, 84 Stat. 1140). Many of the provisions of Legislative Reorganization Act of 1970 (P.L. 91-510, 84 Stat. 1140). Many of the provisions of
these acts that established legislative procedures have since been incorporated into the rules of the these acts that established legislative procedures have since been incorporated into the rules of the
House.17 Sections 1106 and 1107 of the House.17 Sections 1106 and 1107 of the House Manual set forth and annotate some provisions of set forth and annotate some provisions of
these acts that are in effect but are not included in the rules of the House. these acts that are in effect but are not included in the rules of the House.
Expedited Procedures
A majority of statutory rulemaking provisions detail the legislative procedures to be followed in A majority of statutory rulemaking provisions detail the legislative procedures to be followed in
the House and Senate during the consideration of specified matters. Most of these statutes the House and Senate during the consideration of specified matters. Most of these statutes
establish expedited, or “fast track,” procedures for the House to follow in disapproving or establish expedited, or “fast track,” procedures for the House to follow in disapproving or
approving actions of the executive branch or independent agencies. A well-known example is the approving actions of the executive branch or independent agencies. A well-known example is the
Congressional Review Act, which provides for special procedures Congress can use to overturn a Congressional Review Act, which provides for special procedures Congress can use to overturn a
rule issued by a federal agency.18 rule issued by a federal agency.18
The final section of the The final section of the House Manual for the 118th Congress, titled “Legislative Procedures for the 118th Congress, titled “Legislative Procedures
Enacted in Law,” presents more than 50 excerpts from rulemaking statutes that establish House Enacted in Law,” presents more than 50 excerpts from rulemaking statutes that establish House
procedures for specific categories of measures identified in the statute itself.19 Many of these procedures for specific categories of measures identified in the statute itself.19 Many of these
statutes have been infrequently used, and there are fewer annotations by the Parliamentarian in statutes have been infrequently used, and there are fewer annotations by the Parliamentarian in
this part of the this part of the House Manual than in other places. than in other places.
Budget Process Statutes
A section of the A section of the House Manual presents selected provisions of the Congressional Budget and presents selected provisions of the Congressional Budget and
Impoundment Control Act of 1974, the Budget Enforcement Act of 1990, and the Statutory Pay-Impoundment Control Act of 1974, the Budget Enforcement Act of 1990, and the Statutory Pay-
As-You-Go Act of 2010.20 The rulemaking provisions included define specific procedures for As-You-Go Act of 2010.20 The rulemaking provisions included define specific procedures for
considering budgetary legislation in the House and the Senate. For example, the Congressional considering budgetary legislation in the House and the Senate. For example, the Congressional

16 For example, Section 904(a)(1) and 904(a)(2) of the Congressional Budget and Impoundment Control Act of 1974 16 For example, Section 904(a)(1) and 904(a)(2) of the Congressional Budget and Impoundment Control Act of 1974
(P.L. 93-344, 88 Stat. 298, as amended). (P.L. 93-344, 88 Stat. 298, as amended).
17 For example, the requirement that all House standing committees adopt written rules of procedure (House Rule XI, 17 For example, the requirement that all House standing committees adopt written rules of procedure (House Rule XI,
clause 2) was originally a provision of the Legislative Reorganization Act of 1970. This requirement was incorporated clause 2) was originally a provision of the Legislative Reorganization Act of 1970. This requirement was incorporated
into the rules of the House in 1971. See Rules of the House of Representatives in the into the rules of the House in 1971. See Rules of the House of Representatives in the House Manual, §791. , §791.
18 5 U.S.C. §§801-808. For more information on the Congressional Review Act, see CRS In Focus IF10023, 18 5 U.S.C. §§801-808. For more information on the Congressional Review Act, see CRS In Focus IF10023, The
Congressional Review Act (CRA): A Brief Overview, by Maeve P. Carey and Christopher M. Davis; and CRS Report , by Maeve P. Carey and Christopher M. Davis; and CRS Report
R43992, R43992, The Congressional Review Act (CRA): Frequently Asked Questions, by Maeve P. Carey and Christopher M. , by Maeve P. Carey and Christopher M.
Davis. Davis.
19 This is Section 1130 in the 19 This is Section 1130 in the House Manual for the 118th for the 118th ~~Congress~~Cong. In previous editions, these rulemaking statutes . In previous editions, these rulemaking statutes
appeared in the same section under the heading “‘Congressional Disapproval’ Provisions Contained in Public Laws.” appeared in the same section under the heading “‘Congressional Disapproval’ Provisions Contained in Public Laws.”
20 Respectively, P.L. 93-344, 88 Stat. 298, as amended; P.L. 101-508 104 Stat. 1388-573, as amended; and P.L. 111- 20 Respectively, P.L. 93-344, 88 Stat. 298, as amended; P.L. 101-508 104 Stat. 1388-573, as amended; and P.L. 111-
139, 124 Stat. 8. 139, 124 Stat. 8.
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Budget Act establishes special procedures for considering the congressional budget resolution and Budget Act establishes special procedures for considering the congressional budget resolution and
reconciliation legislation and establishes points of order that a Member could raise against the reconciliation legislation and establishes points of order that a Member could raise against the
consideration of budgetary legislation.21 These provisions are accompanied by the consideration of budgetary legislation.21 These provisions are accompanied by the
Parliamentarian’s annotations on how they have been applied in both the House and the Senate. Parliamentarian’s annotations on how they have been applied in both the House and the Senate.
Provisions in the Congressional Budget Act also authorize the House to include procedural Provisions in the Congressional Budget Act also authorize the House to include procedural
requirements in budget resolutions themselves.22 When adopted, the chief purpose of the requirements in budget resolutions themselves.22 When adopted, the chief purpose of the
concurrent resolution on the budget is to establish, between the House and the Senate, a budget concurrent resolution on the budget is to establish, between the House and the Senate, a budget
plan for the fiscal year. Budget resolutions may also include procedural regulations to govern plan for the fiscal year. Budget resolutions may also include procedural regulations to govern
subsequent action on spending bills or other budget-related measures. Many of these procedural subsequent action on spending bills or other budget-related measures. Many of these procedural
provisions institute new points of order that, similar to those established by the Congressional provisions institute new points of order that, similar to those established by the Congressional
Budget Act itself, might be raised against budgetary measures or provisions contained within Budget Act itself, might be raised against budgetary measures or provisions contained within
them.23 Procedures established by these provisions may be applicable only to budgetary action for them.23 Procedures established by these provisions may be applicable only to budgetary action for
a specified time period but may also be established as permanent procedures that are altered or a specified time period but may also be established as permanent procedures that are altered or
abolished only by action in a subsequent budget resolution. abolished only by action in a subsequent budget resolution.
Procedures set forth in congressional budget resolutions are not comprehensively compiled in a Procedures set forth in congressional budget resolutions are not comprehensively compiled in a
single source and may best be identified by examining the texts of adopted congressional budget single source and may best be identified by examining the texts of adopted congressional budget
resolutions for successive years. resolutions for successive years.
Official Compilations of Precedents of the House
As discussed, selected precedents of the House are summarized in the Parliamentarian’s As discussed, selected precedents of the House are summarized in the Parliamentarian’s
annotations in the annotations in the House Manual. Procedural floor exchanges that establish House precedents can . Procedural floor exchanges that establish House precedents can
be found in the be found in the Congressional Record on the dates when they occurred. In addition, House on the dates when they occurred. In addition, House
precedents are compiled in four official publications of the House: precedents are compiled in four official publications of the House:
1. 1. House Practice, ,
2. 2. Deschler’s Precedents, ,
3. 3. Precedents of the United States House of Representatives, and , and
4. 4. Hinds’ and and Cannon’s Precedents. .
House Practice
House Practice presents comprehensive, consolidated information about contemporary procedure presents comprehensive, consolidated information about contemporary procedure
in the House, including references to the precedents and other parliamentary authorities on which in the House, including references to the precedents and other parliamentary authorities on which
it is grounded.24 The most recent edition reflects the modern practice of the House as of the it is grounded.24 The most recent edition reflects the modern practice of the House as of the ~~115th~~118th
Congress. Congress.
House Practice—the full title of which is —the full title of which is House Practice: A Guide to the Rules, Precedents, and
Procedures of the House—is organized into chapters that cover 59 subjects of House procedure, —is organized into chapters that cover 59 subjects of House procedure,
including “Appeals,” “Calendars,” and “Veto Procedure.” including “Appeals,” “Calendars,” and “Veto Procedure.” House Practice also has a chapter on also has a chapter on

21 See CRS Report 97-865, 21 See CRS Report 97-865, Points of Order in the Congressional Budget Process, by James V. Saturno. , by James V. Saturno.
22 Section 301(b)(4) of the Congressional Budget Act states that budget resolutions may “set forth such other matters, 22 Section 301(b)(4) of the Congressional Budget Act states that budget resolutions may “set forth such other matters,
and require such other procedures, relating to the budget, as may be appropriate to carry out the purposes of this Act.” and require such other procedures, relating to the budget, as may be appropriate to carry out the purposes of this Act.”
23 For example, the budget resolution for FY2022 (S.Con.Res. 14, 117th 23 For example, the budget resolution for FY2022 (S.Con.Res. 14, 117th ~~Congress~~Cong.) established a point of order against ) established a point of order against
advance appropriations (discretionary budget authority available one or more fiscal years after the budget year covered advance appropriations (discretionary budget authority available one or more fiscal years after the budget year covered
by the appropriations act) in both the House and the Senate. by the appropriations act) in both the House and the Senate.
24 The initial edition of 24 The initial edition of House Practice was prepared by William Holmes Brown, former Parliamentarian of the House was prepared by William Holmes Brown, former Parliamentarian of the House
(1974-1994). It was intended to replace (1974-1994). It was intended to replace Procedure in the U.S. House of Representatives, which was published in 1982 , which was published in 1982
(and supplemented in 1985 and 1987), and (and supplemented in 1985 and 1987), and Cannon’s Procedure in the House of Representatives, published in 1963. , published in 1963.
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the rules and precedents governing House consideration of budgetary legislation, titled “Budget the rules and precedents governing House consideration of budgetary legislation, titled “Budget
Process,” which provides useful information on the main rulemaking statutes related to the budget Process,” which provides useful information on the main rulemaking statutes related to the budget
process. process.
These chapters are presented in alphabetical order, and the full list of subjects appears in the table These chapters are presented in alphabetical order, and the full list of subjects appears in the table
of contents. Each chapter is divided into numbered topical sections, which may be grouped under of contents. Each chapter is divided into numbered topical sections, which may be grouped under
broader overall headings identified by a letter. The beginning of each chapter includes a list of the broader overall headings identified by a letter. The beginning of each chapter includes a list of the
chapter’s main topics, by section, followed by citations to other House parliamentary reference chapter’s main topics, by section, followed by citations to other House parliamentary reference
sources under the heading “Research References.” sources under the heading “Research References.”
The first section of each chapter reviews the general principles governing the House procedure The first section of each chapter reviews the general principles governing the House procedure
under discussion. The topics and subtopics that follow summarize relevant House rules and under discussion. The topics and subtopics that follow summarize relevant House rules and
selected precedents and include citations to the sources containing their full texts. Some chapters selected precedents and include citations to the sources containing their full texts. Some chapters
may also provide the terminology used to undertake certain parliamentary actions, such as may also provide the terminology used to undertake certain parliamentary actions, such as
making different motions (often under the subtopic heading “Form”). making different motions (often under the subtopic heading “Form”).
Readers can use the publication’s index to locate information about specific procedural topics. Readers can use the publication’s index to locate information about specific procedural topics.
This index is organized primarily around the chapter subject headings and other key topical areas, This index is organized primarily around the chapter subject headings and other key topical areas,
which are included in bold, capitalized text. The entries under each heading present citations to which are included in bold, capitalized text. The entries under each heading present citations to
related topics by chapter and section number. The index provides a more detailed listing of related topics by chapter and section number. The index provides a more detailed listing of
procedural topics than do the outlines at the beginning of the respective chapters. procedural topics than do the outlines at the beginning of the respective chapters.
House Practice
~~Charles W. Johnson,~~ John V. Sul ivan, John V. Sul ivan, ~~and~~ Thomas J. Wickham Jr., Thomas J. Wickham Jr., and Jason A. Smith, House Practice: A Guide to the Rules, Precedents
and Procedures of the House, , ~~115th~~118th Cong., Cong., ~~1st~~2nd sess. (Washington: GPO, sess. (Washington: GPO, ~~2017~~2024). ).
Online: House Practice is available from is available from govinfo.gov at https://www.govinfo.gov/col ection/house-practice?path=/ at https://www.govinfo.gov/col ection/house-practice?path=/
gpo/House%20Practicegpo/House%20Practice~~/115th%20Congress~~ and the House resources page of and the House resources page of Congress.gov at at
https://www.congress.gov/help/house-of-representatives under the heading “Rules, Precedents, and Procedures.” https://www.congress.gov/help/house-of-representatives under the heading “Rules, Precedents, and Procedures.”
Print: When issued, When issued, House Practice is distributed to House Member and committee offices. is distributed to House Member and committee offices. House Practice is also is also
available for reference in the House Library (292 Cannon). available for reference in the House Library (292 Cannon).
Deschler’s Precedents
Significant recent precedents of the House are detailed in a series of 18 volumes titled Significant recent precedents of the House are detailed in a series of 18 volumes titled Deschler’s
Precedents of the United States House of Representatives (commonly referred to as (commonly referred to as Deschler’s
Precedents). The series was initiated by Lewis Deschler, former Parliamentarian of the House ). The series was initiated by Lewis Deschler, former Parliamentarian of the House
from 1928 to 1974, and continued by his successors. from 1928 to 1974, and continued by his successors.
Deschler’s Precedents covers House precedents established after 1936 through the publication covers House precedents established after 1936 through the publication
date. The volumes were published over a period of years, so the later volumes cover more recent date. The volumes were published over a period of years, so the later volumes cover more recent
precedents than the earlier ones.25 Volume 1 concludes with the first session of the 93rd Congress precedents than the earlier ones.25 Volume 1 concludes with the first session of the 93rd Congress
(1973), while volume 18 covers precedents established through the 112th Congress (2011-12).26 (1973), while volume 18 covers precedents established through the 112th Congress (2011-12).26
Deschler’s Precedents is organized in topical chapters, the sequence of which roughly parallels is organized in topical chapters, the sequence of which roughly parallels
the order of action in the House. Chapter 1 covers the “Assembly of Congress,” while the the order of action in the House. Chapter 1 covers the “Assembly of Congress,” while the
penultimate chapter, chapter 40, is titled “Adjournment.” Chapter 41, the final chapter, is titled penultimate chapter, chapter 40, is titled “Adjournment.” Chapter 41, the final chapter, is titled
“Budget Process.” Each chapter is divided into numbered sections by subject matter, and these “Budget Process.” Each chapter is divided into numbered sections by subject matter, and these

25 The section below includes a discussion of 25 The section below includes a discussion of Precedents of the United States House of Representatives, which details , which details
precedents established since the publication of precedents established since the publication of Deschler’s Precedents. .
26 Many of these volumes were published before the House recodified its rules in the 106th 26 Many of these volumes were published before the House recodified its rules in the 106th ~~Congress~~Cong. Therefore, . Therefore,
citations to the rules in these volumes refer to rule numbers, and corresponding sections of the citations to the rules in these volumes refer to rule numbers, and corresponding sections of the House Manual, as they , as they
stood before the recodification. stood before the recodification.
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sections are often grouped under broader topical headings identified by letters. Each chapter sections are often grouped under broader topical headings identified by letters. Each chapter
includes an “Index to Precedents” that directs readers to the relevant section number for each includes an “Index to Precedents” that directs readers to the relevant section number for each
precedent in that chapter. precedent in that chapter.
Most chapters, and many sections, begin with an introduction that describes the general principles Most chapters, and many sections, begin with an introduction that describes the general principles
of the House rule or practice under discussion and summarizes the precedents that follow. of the House rule or practice under discussion and summarizes the precedents that follow.
Individual precedents are presented in numbered subsections and may be cited by chapter and Individual precedents are presented in numbered subsections and may be cited by chapter and
number (e.g., “number (e.g., “Deschler’s Precedents, chapter 20, section 3.11”). , chapter 20, section 3.11”).
Subsections, or groups of subsections, are headed by bold and italicized catchlines identifying the Subsections, or groups of subsections, are headed by bold and italicized catchlines identifying the
subject of the precedents, followed by a bold headnote stating each precedent. The text following subject of the precedents, followed by a bold headnote stating each precedent. The text following
the headnote describes the precedent, often including the full text of the procedural exchange that the headnote describes the precedent, often including the full text of the procedural exchange that
established it, and may include citations to the established it, and may include citations to the Congressional Record.27 Some precedents are .27 Some precedents are
followed by a “Parliamentarian’s Note” that explains the principle established by the precedent or followed by a “Parliamentarian’s Note” that explains the principle established by the precedent or
directs the reader to other parliamentary reference sources. directs the reader to other parliamentary reference sources.
Deschler’s Precedents
Lewis Deschler, Lewis Deschler, Deschler’s Precedents of the U.S. House of Representatives (vol. 1-9); Lewis Deschler and W[il ia]m (vol. 1-9); Lewis Deschler and W[il ia]m
Holmes Brown, Holmes Brown, Deschler-Brown Precedents of the U.S. House of Representatives (vol. 10-16); Lewis Deschler, (vol. 10-16); Lewis Deschler,
W[il ia]m Holmes Brown, and Charles W. JohnsonW[il ia]m Holmes Brown, and Charles W. Johnson, Deschler-Brown-Johnson Precedents of the U.S. House of
Representatives (vol. 17); and Lewis Deschler, W[il ia]m Holmes Brown, Charles W. Johnson, and John V. Sul ivan, (vol. 17); and Lewis Deschler, W[il ia]m Holmes Brown, Charles W. Johnson, and John V. Sul ivan,
Deschler-Brown-Johnson-Sullivan Precedents of the U.S. House of Representatives (vol. 18), H.Doc. 94-661, 94th Cong., (vol. 18), H.Doc. 94-661, 94th Cong.,
2nd sess. (Washington: GPO, 1976-2013). 2nd sess. (Washington: GPO, 1976-2013).
Online: Deschler’s Precedents is available through is available through govinfo.gov at https://www.govinfo.gov/col ection/precedents- at https://www.govinfo.gov/col ection/precedents-
of-the-house?path=/GPO/Precedents%20of%20the%20U.S.%20House%20of%20Representatives and via of-the-house?path=/GPO/Precedents%20of%20the%20U.S.%20House%20of%20Representatives and via
Congress.gov at https://www.congress.gov/help/house-of-representatives under the heading “Rules, Precedents, at https://www.congress.gov/help/house-of-representatives under the heading “Rules, Precedents,
and Procedures.” and Procedures.”
Print: Deschler’s Precedents is available for reference at the House Library (292 Cannon) and the La Fol ette is available for reference at the House Library (292 Cannon) and the La Fol ette
Congressional Reading Room (202 Madison). (This reading room is reserved for use by Members of Congress, Congressional Reading Room (202 Madison). (This reading room is reserved for use by Members of Congress,
their families, and their staff. Staff should call ahead to confirm the availability of their families, and their staff. Staff should call ahead to confirm the availability of Deschler’s Precedents.) .)
Precedents of the United States House of Representatives
Following the completion of the 18th and final volume of Following the completion of the 18th and final volume of Deschler’s Precedents, the Office of the , the Office of the
Parliamentarian began to publish a new series of House precedents, titled Parliamentarian began to publish a new series of House precedents, titled Precedents of the
United States House of Representatives. This series presents recent House precedents on the same . This series presents recent House precedents on the same
topical chapters that comprise topical chapters that comprise Deschler’s Precedents. The first chapter of the first volume, for . The first chapter of the first volume, for
example, includes precedents established through the opening day of the 115th Congress on the example, includes precedents established through the opening day of the 115th Congress on the
topic “Assembly of Congress,” which is the first chapter in topic “Assembly of Congress,” which is the first chapter in Deschler’s Precedents (published in (published in
1977). The series focuses on contemporary developments in House procedure, including, for 1977). The series focuses on contemporary developments in House procedure, including, for
example, the increased use of special orders of business (special rules) and the decreased use of example, the increased use of special orders of business (special rules) and the decreased use of
conference committees to resolve differences between the chambers. conference committees to resolve differences between the chambers.
Precedents of the United States House of Representatives largely follows the same organizational largely follows the same organizational
format as format as Deschler’s Precedents, with chapters that cover different subject areas and sections and , with chapters that cover different subject areas and sections and
subsections that document specific precedents. The first three volumes include bold and italicized subsections that document specific precedents. The first three volumes include bold and italicized
catchlines that describe general topical areas and subsections that detail individual precedents. catchlines that describe general topical areas and subsections that detail individual precedents.
The text of the procedural exchanges and relevant citations are often included with the specific The text of the procedural exchanges and relevant citations are often included with the specific

27 If the same proceedings illustrate more than one principle, each principle will be set forth as a headnote in its own 27 If the same proceedings illustrate more than one principle, each principle will be set forth as a headnote in its own
subsection. subsection.
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precedents. An index at the end of each chapter directs the reader to the section and subsection(s) precedents. An index at the end of each chapter directs the reader to the section and subsection(s)
in which precedents on that topic can be found. in which precedents on that topic can be found.
Precedents of the United States House of Representatives
U.S. Congress, House, U.S. Congress, House, Precedents of the United States House of Representatives, prepared by Charles W. Johnson, III, , prepared by Charles W. Johnson, III,
John V. Sul ivan, and Thomas J. Wickham Jr., 115th Cong., 1st sess., 115-62 (Washington: GPO, 2017). John V. Sul ivan, and Thomas J. Wickham Jr., 115th Cong., 1st sess., 115-62 (Washington: GPO, 2017).
Online: The first three volumes ofThe first three volumes of Precedents of the United States House of Representatives are are available viaavailable via
govinfo.gov at https://www.govinfo.gov/col ection/precedents-of-the-house?path=/GPO/ at https://www.govinfo.gov/col ection/precedents-of-the-house?path=/GPO/
Precedents%20of%20the%20U.S.%20House%20of%20Representatives and from the resources page ofPrecedents%20of%20the%20U.S.%20House%20of%20Representatives and from the resources page of
Congress.gov atat https://www.congress.gov/help/house-of-representatives under the heading “Rules, Precedents, https://www.congress.gov/help/house-of-representatives under the heading “Rules, Precedents,
and Procedures.” and Procedures.”
Print: The first three volumes ofThe first three volumes of Precedents of the United States House of Representatives are are available for reference available for reference
in the House Library (292 Cannon). in the House Library (292 Cannon).
Hinds’ and Cannon’s Precedents
Hinds’ and and Cannon’s Precedents of the House of Representatives of the United States (referred to (referred to
as as Hinds’ and and Cannon’s Precedents) is an 11-volume series containing selected rulings of the ) is an 11-volume series containing selected rulings of the
chair, and other precedents established, between 1789 and 1936. The publication provides chair, and other precedents established, between 1789 and 1936. The publication provides
valuable coverage of the historical origins and evolution of House procedures up to 1936. valuable coverage of the historical origins and evolution of House procedures up to 1936.
Volumes 1-5, titled Volumes 1-5, titled Hinds’ Precedents and published in 1907, were written by Asher Hinds (clerk and published in 1907, were written by Asher Hinds (clerk
at the Speaker’s table for many years and a Representative from Maine from 1911 until 1917). at the Speaker’s table for many years and a Representative from Maine from 1911 until 1917).
Volumes 6-11, titled Volumes 6-11, titled Cannon’s Precedents and published in 1936, were prepared by Clarence and published in 1936, were prepared by Clarence
Cannon (House Parliamentarian from 1915 to 1920 and a Representative from Missouri from Cannon (House Parliamentarian from 1915 to 1920 and a Representative from Missouri from
1923 to 1964). 1923 to 1964).
Hinds’ Precedents is organized into almost 150 topical chapters arranged roughly according to the is organized into almost 150 topical chapters arranged roughly according to the
order of proceedings in the House. order of proceedings in the House. Cannon’s Precedents duplicates largely the same chapter duplicates largely the same chapter
structure and essentially serves as a supplement to the earlier series.28 The final three volumes of structure and essentially serves as a supplement to the earlier series.28 The final three volumes of
Cannon’s Precedents (volumes 9-11) present a comprehensive index to volumes 1-8 of the series. (volumes 9-11) present a comprehensive index to volumes 1-8 of the series.
The content of each series is presented in sections that are numbered sequentially throughout each The content of each series is presented in sections that are numbered sequentially throughout each
series. Individual sections are cited by volume, series, and number (e.g., “IV Hinds 4823” or “VII series. Individual sections are cited by volume, series, and number (e.g., “IV Hinds 4823” or “VII
Cannon 1530”), although the Cannon 1530”), although the House Manual cites them by volume and number alone (e.g., “IV, cites them by volume and number alone (e.g., “IV,
4823”). 4823”).
Sections at the beginning of each chapter, and those that inaugurate a topic within a chapter, may Sections at the beginning of each chapter, and those that inaugurate a topic within a chapter, may
state and review pertinent rules of the House. Most sections, however, present individual state and review pertinent rules of the House. Most sections, however, present individual
precedents. Each such section describes the procedural exchange establishing the precedent, often precedents. Each such section describes the procedural exchange establishing the precedent, often
quoting the ruling of the chair, and provides citations to the quoting the ruling of the chair, and provides citations to the Congressional Record and other and other
relevant sources.relevant sources. Most sections—or groups of sections—carry a headnote in bold type stating the Most sections—or groups of sections—carry a headnote in bold type stating the
principle demonstrated with the precedent(s).29 principle demonstrated with the precedent(s).29
Information about specific procedural topics can be located using the detailed table of contents in Information about specific procedural topics can be located using the detailed table of contents in
each volume. In addition, the index to both series (volumes 9-11) is arranged by topic, and broad each volume. In addition, the index to both series (volumes 9-11) is arranged by topic, and broad
topics are broken down into numbered subtopics. Under each topic or numbered subtopic, each topics are broken down into numbered subtopics. Under each topic or numbered subtopic, each

28 Some differences between the publications reflect changes in House procedure. For example, 28 Some differences between the publications reflect changes in House procedure. For example, Cannon’s Precedents
includes a chapter on the discharge rule, which did not exist during the period covered by includes a chapter on the discharge rule, which did not exist during the period covered by Hinds’ Precedents. .
29 In contrast to 29 In contrast to Deschler’s Precedents, proceedings that illustrate more than one principle are often combined in only , proceedings that illustrate more than one principle are often combined in only
one section with multiple headnotes. one section with multiple headnotes.
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specific section referenced is identified not only by volume and section number but by setting specific section referenced is identified not only by volume and section number but by setting
forth the pertinent headnote. forth the pertinent headnote.
Hinds’ and Cannon’s Precedents
Asher C. Hinds, Asher C. Hinds, Hinds’ Precedents of the House of Representatives of the United States, (Washington: GPO, 1907), vol. , (Washington: GPO, 1907), vol.
1-5, and Clarence Cannon, 1-5, and Clarence Cannon, Cannon’s Precedents of the House of Representatives of the United States (Washington: (Washington:
GPO, 1935-1941), vol. 6-11. GPO, 1935-1941), vol. 6-11.
Online: Hinds’ andand Cannon’s Precedents are available via are available via govinfo.gov at https://www.govinfo.gov/col ection/ at https://www.govinfo.gov/col ection/
precedents-of-the-house?path=/GPO/Precedents%20of%20the%20U.S.%20House%20of%20Representatives and precedents-of-the-house?path=/GPO/Precedents%20of%20the%20U.S.%20House%20of%20Representatives and
the House resources page of the House resources page of Congress.gov at https://www.congress.gov/help/house-of-representatives under the at https://www.congress.gov/help/house-of-representatives under the
heading “Rules, Precedents, and Procedures.” heading “Rules, Precedents, and Procedures.”
Print: Copies of Copies of Hinds’ and and Cannon’s Precedents are available for reference at the House Library (292 Cannon) and are available for reference at the House Library (292 Cannon) and
the La Fol ette Congressional Reading Room (202 Madison). (This reading room is reserved for use by Members of the La Fol ette Congressional Reading Room (202 Madison). (This reading room is reserved for use by Members of
Congress, their families, and their staff. Staff should call ahead to confirm the availability of Congress, their families, and their staff. Staff should call ahead to confirm the availability of Hinds’ and Cannon’s
Precedents.) .)
Special Rules from the Committee on Rules
The House Committee on Rules has jurisdiction over “the order of business of the House.”30 In The House Committee on Rules has jurisdiction over “the order of business of the House.”30 In
modern practice, this means that the Rules Committee reports simple resolutions known as modern practice, this means that the Rules Committee reports simple resolutions known as
special orders of business, or special rules, that establish the procedure for the consideration of special orders of business, or special rules, that establish the procedure for the consideration of
one or more measures specified in the resolution. Once adopted by the House, these resolutions one or more measures specified in the resolution. Once adopted by the House, these resolutions
may, for example, set time limits for general debate on a measure, identify which amendments are may, for example, set time limits for general debate on a measure, identify which amendments are
in order to it and who may offer them, and indicate whether any points of order against the in order to it and who may offer them, and indicate whether any points of order against the
measure are waived. These special rules are created through the constitutional rulemaking measure are waived. These special rules are created through the constitutional rulemaking
authority of the House, so, once agreed to by the House, they have the same authority as the authority of the House, so, once agreed to by the House, they have the same authority as the
House’s standing rules. House’s standing rules.
Special rules outlining the procedures for considering certain measures are made available on the Special rules outlining the procedures for considering certain measures are made available on the
website of the Rules Committee and through Congress.gov. The text of each resolution may also website of the Rules Committee and through Congress.gov. The text of each resolution may also
be found in the be found in the Congressional Record during House proceedings adopting the resolution. during House proceedings adopting the resolution.
Special Rules
Simple resolutions containing special rules are reported from the House Committee on Rules and are available Simple resolutions containing special rules are reported from the House Committee on Rules and are available
through the Rules Committee website at https://rules.house.gov/. The text of special rules may also be found via through the Rules Committee website at https://rules.house.gov/. The text of special rules may also be found via
Congress.gov (https://www.congress.gov/) by searching for the resolution by its number (e.g., “H.Res. 429”) or (https://www.congress.gov/) by searching for the resolution by its number (e.g., “H.Res. 429”) or
by searching the by searching the Congressional Record to find the proceedings to adopt the resolution. to find the proceedings to adopt the resolution.
Rules of Internal Organizations of the House
The chief institutional elements that make up the internal structure of the House are the The chief institutional elements that make up the internal structure of the House are the
committees and the party conferences (known, in the case of the Democratic Party, as the caucus). committees and the party conferences (known, in the case of the Democratic Party, as the caucus).
The standing committees established by House rules are chiefly responsible for developing the The standing committees established by House rules are chiefly responsible for developing the
substance of legislative proposals, and one of the chief functions of the party conferences is to substance of legislative proposals, and one of the chief functions of the party conferences is to
nominate their respective members to leadership and committee roles. Each committee and each nominate their respective members to leadership and committee roles. Each committee and each
conference adopts its own rules. Although these rules are not binding on the House at large, their conference adopts its own rules. Although these rules are not binding on the House at large, their
provisions may affect the way proceedings in the House occur. provisions may affect the way proceedings in the House occur.

30 See House Rule X, clause 1(o). 30 See House Rule X, clause 1(o).
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Committee Rules of Procedure
Many provisions of House rules, especially those of Rule XI, regulate proceedings in House Many provisions of House rules, especially those of Rule XI, regulate proceedings in House
committees. Clause 2 of Rule XI also requires that each standing committee adopt its own written committees. Clause 2 of Rule XI also requires that each standing committee adopt its own written
rules of procedure, which it must publish in the rules of procedure, which it must publish in the Congressional Record within 60 days of the within 60 days of the
election of its chair at the start of a new Congress. These committee rules may not be inconsistent election of its chair at the start of a new Congress. These committee rules may not be inconsistent
with the standing rules of the House, and they cover important aspects of committee proceedings, with the standing rules of the House, and they cover important aspects of committee proceedings,
such as hearing and markup procedures. Committee rules can be enforced in the committee that such as hearing and markup procedures. Committee rules can be enforced in the committee that
adopts them but are not enforceable on the House floor. adopts them but are not enforceable on the House floor.
Each Congress, the House Committee on Rules issues a print ( Each Congress, the House Committee on Rules issues a print (Rules Adopted by the Committees
of the House of Representatives) that compiles the rules of procedure adopted by all House ) that compiles the rules of procedure adopted by all House
standing committees. The rules of each committee also appear in the standing committees. The rules of each committee also appear in the Congressional Record on the on the
dates they were submitted for publication. Most committees publish their rules in committee dates they were submitted for publication. Most committees publish their rules in committee
prints or on their websites as well. prints or on their websites as well.
Rules Adopted by Committees of the House
U.S. Congress, House Committee on Rules, U.S. Congress, House Committee on Rules, Rules Adopted by the Committees of the House of Representatives, ,
committee print, 118th Cong., 1st sess., RCP 118-19 (Washington: GPO, 2023). committee print, 118th Cong., 1st sess., RCP 118-19 (Washington: GPO, 2023).
Online: Rules Adopted by the Committees of the House of Representatives for the 118th Congress can be accessed for the 118th Congress can be accessed
throughthrough govinfo.gov atat https://www.govinfo.gov/content/pkg/CPRT-118HPRT53578/pdf/CPRT-https://www.govinfo.gov/content/pkg/CPRT-118HPRT53578/pdf/CPRT-
118HPRT53578.pdf118HPRT53578.pdf or through theor through the resources page of the Rules Committee website at https://rules.house.gov/resources page of the Rules Committee website at https://rules.house.gov/
resources. The rules of individual House committees may be found by searching the resources. The rules of individual House committees may be found by searching the Congressional Record through through
Congress.gov at https://www.congress.gov/. Most House committees also post these rules on the committee’s at https://www.congress.gov/. Most House committees also post these rules on the committee’s
website. website.
Party Caucus or Conference Rules
The rules of the House Republican Conference and Democratic Caucus are adopted by the House The rules of the House Republican Conference and Democratic Caucus are adopted by the House
Members of the respective parties during their early organizational meetings after the November Members of the respective parties during their early organizational meetings after the November
election.31 The caucus and conference rules are adopted only by the respective parties, so they are election.31 The caucus and conference rules are adopted only by the respective parties, so they are
not directly enforceable on the House floor. Nevertheless, conference rules may affect not directly enforceable on the House floor. Nevertheless, conference rules may affect
proceedings of the House, for they often include provisions affecting the selection and terms of proceedings of the House, for they often include provisions affecting the selection and terms of
party and committee leaders, the assignment of members to committees, and the scheduling of party and committee leaders, the assignment of members to committees, and the scheduling of
business on the floor.32 business on the floor.32
During the 115th Congress, the House Committee on Rules published During the 115th Congress, the House Committee on Rules published Compilation of Selected
Rules of the Republican Conference and Democratic Caucus as compiled by the Office of the as compiled by the Office of the
Parliamentarian.33 This document includes sets of rules from the 100th, 105th, 110th, and 115th Parliamentarian.33 This document includes sets of rules from the 100th, 105th, 110th, and 115th
Congresses and thereby portrays the evolution of caucus and conference rules from 1987 through Congresses and thereby portrays the evolution of caucus and conference rules from 1987 through
2017. 2017.

31 Members of each party serving as Resident Commissioner from Puerto Rico or as Delegate from American Samoa, 31 Members of each party serving as Resident Commissioner from Puerto Rico or as Delegate from American Samoa,
the District of Columbia, Guam, the Northern Mariana Islands, or the U.S. Virgin Islands may also join the Democratic the District of Columbia, Guam, the Northern Mariana Islands, or the U.S. Virgin Islands may also join the Democratic
Caucus or the Republican Conference. Caucus or the Republican Conference.
32 For instance, party rules often contain limitations on the kinds of measures that would be scheduled for consideration 32 For instance, party rules often contain limitations on the kinds of measures that would be scheduled for consideration
under suspension procedure. The leadership of the House may also develop legislative protocols to assist the majority under suspension procedure. The leadership of the House may also develop legislative protocols to assist the majority
leader with scheduling and business on the House floor. The floor protocols for the 118th leader with scheduling and business on the House floor. The floor protocols for the 118th ~~Congress~~Cong. may be found at may be found at
https://www.majorityleader.gov/schedule/floor-protocols.htm. Protocols that were in effect in the 117th https://www.majorityleader.gov/schedule/floor-protocols.htm. Protocols that were in effect in the 117th ~~Congress~~Cong. may may
be found via https://leaderarchive-hoyer.house.gov/content/117th-congress-legislative-protocols. be found via https://leaderarchive-hoyer.house.gov/content/117th-congress-legislative-protocols.
33 U.S. Congress, House Committee on Rules, 33 U.S. Congress, House Committee on Rules, Compilation of Selected Rules of the Republican Conference and
Democratic Caucus, committee print, 115th Cong., 1st sess., H.Prt. 115-37 (Washington: GPO, 2017). , committee print, 115th Cong., 1st sess., H.Prt. 115-37 (Washington: GPO, 2017).
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House Party Conference or Caucus Rules (Online Access)
• •
The Rules of the House Republican Conference for the 118th Congress can be accessed via The Rules of the House Republican Conference for the 118th Congress can be accessed via
https://www.gop.gov/conference-rules-of-the-118th-congress/. https://www.gop.gov/conference-rules-of-the-118th-congress/.
• •
The Rules of the House Democratic Caucus for the 118th Congress can be accessed via The Rules of the House Democratic Caucus for the 118th Congress can be accessed via
https://www.dems.gov/rules-of-the-democratic-caucus. https://www.dems.gov/rules-of-the-democratic-caucus.
• •
Compilation of Selected Rules of the Republican Conference and Democratic Caucus is available via is available via govinfo.gov at at
https://www.govinfo.gov/content/pkg/CPRT-115HPRT27480/pdf/CPRT-115HPRT27480.pdf. https://www.govinfo.gov/content/pkg/CPRT-115HPRT27480/pdf/CPRT-115HPRT27480.pdf.
Additional Authorities
As previously noted, procedure in the House is governed not only by the Constitution, formally As previously noted, procedure in the House is governed not only by the Constitution, formally
adopted rules, and precedents but also by a variety of other practices that have become customary adopted rules, and precedents but also by a variety of other practices that have become customary
over the course of time. Although these informal practices are not adopted by the House itself, over the course of time. Although these informal practices are not adopted by the House itself,
they supplement the rules and may influence House proceedings. they supplement the rules and may influence House proceedings.
Some of these practices are embodied in written statements that provide guidance on the Some of these practices are embodied in written statements that provide guidance on the
procedures the House will follow. This section discusses two authorities of this kind: (1) policies procedures the House will follow. This section discusses two authorities of this kind: (1) policies
announced by the Speaker and (2) memoranda of understanding developed between committees announced by the Speaker and (2) memoranda of understanding developed between committees
about their respective jurisdictions. about their respective jurisdictions.
Speaker’s Policies
Speakers of the House have developed a number of policies specifying ways in which they intend Speakers of the House have developed a number of policies specifying ways in which they intend
to carry out certain House rules or exercise particular discretionary powers. Although these to carry out certain House rules or exercise particular discretionary powers. Although these
policies are not themselves rules, they reflect an exercise of the Speaker’s authority under House policies are not themselves rules, they reflect an exercise of the Speaker’s authority under House
rules.34 Often, these policies have been developed through consultation with leaders of the rules.34 Often, these policies have been developed through consultation with leaders of the
minority party and have continued under Speakers of both parties. minority party and have continued under Speakers of both parties.
In the early days of a new Congress, it is customary for the Speaker to make an announcement In the early days of a new Congress, it is customary for the Speaker to make an announcement
from the chair stating policies he or she intends to continue. This announcement normally appears from the chair stating policies he or she intends to continue. This announcement normally appears
in the in the Congressional Record accompanied by the insertion of statements reflecting the details of accompanied by the insertion of statements reflecting the details of
the respective policies. The “Announcement by the Speaker” of policies for the 118th Congress the respective policies. The “Announcement by the Speaker” of policies for the 118th Congress
includes reference to policies on (1) privileges of the floor for staff and former Members, (2) the includes reference to policies on (1) privileges of the floor for staff and former Members, (2) the
introduction of measures, (3) recognition for unanimous consent requests for consideration of introduction of measures, (3) recognition for unanimous consent requests for consideration of
measures, (4) recognition for one-minute speeches, (5) recognition for special order speeches, (6) measures, (4) recognition for one-minute speeches, (5) recognition for special order speeches, (6)
decorum in debate, (7) the conduct of electronic votes, (8) the use of handouts on the House floor, decorum in debate, (7) the conduct of electronic votes, (8) the use of handouts on the House floor,
(9) the use of electronic devices on the House floor, and (10) the use of the House chamber.35 (9) the use of electronic devices on the House floor, and (10) the use of the House chamber.35
Similar policies are renewed in each new Congress by unanimous consent requests from the floor. Similar policies are renewed in each new Congress by unanimous consent requests from the floor.
In the 118th Congress, such policies concerning special order speeches, morning hour debate, and In the 118th Congress, such policies concerning special order speeches, morning hour debate, and
the daily hour of meeting are set forth in the the daily hour of meeting are set forth in the House Calendar.36 .36

34 For more information on the Speaker of the House, see CRS Report 97-780, 34 For more information on the Speaker of the House, see CRS Report 97-780, The Speaker of the House: House
Officer, Party Leader, and Representative, by Valerie Heitshusen. , by Valerie Heitshusen.
35 35 Congressional Record, daily edition, vol. 165 (January 9, 2023), pp. H74-H76. , daily edition, vol. 165 (January 9, 2023), pp. H74-H76.
36 For more information on the calendars of the House, see CRS Report 98-437, 36 For more information on the calendars of the House, see CRS Report 98-437, Calendars of the House of
Representatives, by Christopher M. Davis. , by Christopher M. Davis.
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Speaker’s Policies
The Speaker’s Policies and other special orders are printed in the The Speaker’s Policies and other special orders are printed in the Congressional Record once they are offered and once they are offered and
agreed to on the House floor. Some of these policies appear in the agreed to on the House floor. Some of these policies appear in the House Calendar. .
Online: The The Congressional Record for the 118th Congress is available in searchable form through for the 118th Congress is available in searchable form through Congress.gov at at
https://www.congress.gov/. The most recent https://www.congress.gov/. The most recent House Calendar is available through is available through Congress.gov at at
https://www.congress.gov/calendars-and-schedules. All House calendars for the 118th Congress are available from https://www.congress.gov/calendars-and-schedules. All House calendars for the 118th Congress are available from
govinfo.gov at https://www.govinfo.gov/app/col ection/ccal/118/hcal. at https://www.govinfo.gov/app/col ection/ccal/118/hcal.
Memoranda of Understanding Regarding Committee Jurisdiction
Standing committees may develop “memoranda of understanding” (sometimes referred to as Standing committees may develop “memoranda of understanding” (sometimes referred to as
“letters of agreement”) that set forth their shared understanding of how House committee “letters of agreement”) that set forth their shared understanding of how House committee
jurisdiction over a specific policy issue is allocated.37 These memoranda are addressed to the jurisdiction over a specific policy issue is allocated.37 These memoranda are addressed to the
Speaker of the House in the form of a letter from the chairs of the committees involved. In effect, Speaker of the House in the form of a letter from the chairs of the committees involved. In effect,
such memoranda of understanding memorialize how the Speaker will approach the referral of such memoranda of understanding memorialize how the Speaker will approach the referral of
measures addressing specified policy issues when the jurisdictional mandate of committees may measures addressing specified policy issues when the jurisdictional mandate of committees may
be unclear or overlap. be unclear or overlap.
House rules empower the Speaker to refer legislation to committees, and the Parliamentarian of House rules empower the Speaker to refer legislation to committees, and the Parliamentarian of
the House acts as the nonpartisan agent of the Speaker in the performance of this function. the House acts as the nonpartisan agent of the Speaker in the performance of this function.
Referral decisions are based principally on the statements of each committee’s jurisdiction Referral decisions are based principally on the statements of each committee’s jurisdiction
detailed in clause 1 of House Rule X and on relevant precedents. The Speaker and the House detailed in clause 1 of House Rule X and on relevant precedents. The Speaker and the House
Parliamentarian participate in the crafting of these memoranda of understanding that will guide Parliamentarian participate in the crafting of these memoranda of understanding that will guide
the subsequent referral of legislation. These memoranda are therefore an important parliamentary the subsequent referral of legislation. These memoranda are therefore an important parliamentary
reference source for questions about jurisdiction over specific policy issues. Some memoranda of reference source for questions about jurisdiction over specific policy issues. Some memoranda of
understanding are inserted in the understanding are inserted in the Congressional Record. Others are not made public, and no . Others are not made public, and no
compilation of them or their effects is published. compilation of them or their effects is published.
Other Publications on Procedure
Several additional publications prepared by committees and offices of the House provide valuable Several additional publications prepared by committees and offices of the House provide valuable
information about House parliamentary procedure and practices. While these publications are not information about House parliamentary procedure and practices. While these publications are not
official parliamentary reference sources, they may make references to official sources, such as the official parliamentary reference sources, they may make references to official sources, such as the
rules of the House and published precedents. This section describes three such publications. rules of the House and published precedents. This section describes three such publications.
A Compendium of Laws and Rules of the Congressional Budget
Process
A Compendium of Laws and Rules of the Congressional Budget Process, a print of the House , a print of the House
Committee on the Budget, presents the text of the Congressional Budget and Impoundment Committee on the Budget, presents the text of the Congressional Budget and Impoundment
Control Act of 1974, the “Gramm-Rudman-Hollings” Act, and additional information related to Control Act of 1974, the “Gramm-Rudman-Hollings” Act, and additional information related to
the budget process, such as House and Senate rules affecting the budget process.38 This document the budget process, such as House and Senate rules affecting the budget process.38 This document
presents valuable information related to the budgetary process in the House. presents valuable information related to the budgetary process in the House.

37 For an example of these memoranda of understanding, see the 37 For an example of these memoranda of understanding, see the Congressional Record, daily edition, vol. 153 (January , daily edition, vol. 153 (January
4, 2007), pp. H15-H16. 4, 2007), pp. H15-H16.
38 U.S. Congress, House Committee on the Budget, 38 U.S. Congress, House Committee on the Budget, A Compendium of Laws and Rules of the Congressional Budget
Process, committee print, 114th Cong., 1st sess., H.Prt. 114-1 (Washington: GPO, 2015). , committee print, 114th Cong., 1st sess., H.Prt. 114-1 (Washington: GPO, 2015).
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How Our Laws Are Made
How Our Laws Are Made was first published in 1953 by the House Judiciary Committee.39 The was first published in 1953 by the House Judiciary Committee.39 The
most recent version, published in 2007, was prepared by the Office of the House Parliamentarian most recent version, published in 2007, was prepared by the Office of the House Parliamentarian
in consultation with the Office of the Senate Parliamentarian. It provides a summary of the in consultation with the Office of the Senate Parliamentarian. It provides a summary of the
legislative process focusing primarily on House procedures from the drafting of legislation to legislative process focusing primarily on House procedures from the drafting of legislation to
final approval and presidential action. Although the document is intended for non-specialists, its final approval and presidential action. Although the document is intended for non-specialists, its
summary descriptions of House procedures serve as a useful reference source. summary descriptions of House procedures serve as a useful reference source.
Enactment of a Law
Enactment of a Law was prepared by the Parliamentarian of the Senate under the direction of the was prepared by the Parliamentarian of the Senate under the direction of the
Secretary of the Senate and sets forth a concise summary of the legislative process.40 This Secretary of the Senate and sets forth a concise summary of the legislative process.40 This
document, prepared in 1997 by former Parliamentarian of the Senate Robert B. Dove, explains document, prepared in 1997 by former Parliamentarian of the Senate Robert B. Dove, explains
Senate floor procedures and the functions of the various Senate officials, such as the Secretary of Senate floor procedures and the functions of the various Senate officials, such as the Secretary of
the Senate, the Sergeant at Arms, and the Senate Parliamentarian. Some information about House the Senate, the Sergeant at Arms, and the Senate Parliamentarian. Some information about House
and conference procedures and presidential action is also provided. and conference procedures and presidential action is also provided.
Other Publications on Procedure (Online Access)
• •
A Compendium of Laws and Rules of the Congressional Budget Process is available from is available from govinfo.gov at at
https://www.govinfo.gov/content/pkg/CPRT-114HPRT96107/pdf/CPRT-114HPRT96107.pdf.https://www.govinfo.gov/content/pkg/CPRT-114HPRT96107/pdf/CPRT-114HPRT96107.pdf.
• •
Enactment of a Law can be accessed through can be accessed through Congress.gov at https://www.congress.gov/help/learn- at https://www.congress.gov/help/learn-
about-the-legislative-process/enactment-of-a-law. about-the-legislative-process/enactment-of-a-law.
• •
How Our Laws Are Made is available viais available via Congress.gov at https://www.congress.gov/help/learn-about-the- at https://www.congress.gov/help/learn-about-the-
legislative-process/how-our-laws-are-made.legislative-process/how-our-laws-are-made.

39 U.S. Congress, House, 39 U.S. Congress, House, How Our Laws Are Made, prepared by John V. Sullivan, Parliamentarian, 110th Cong., 1st , prepared by John V. Sullivan, Parliamentarian, 110th Cong., 1st
sess., H.Doc. 110-49 (Washington: GPO, 2007). sess., H.Doc. 110-49 (Washington: GPO, 2007).
40 U.S. Senate, 40 U.S. Senate, Enactment of a Law, prepared by Robert B. Dove, Parliamentarian (Washington: GPO, 1997). , prepared by Robert B. Dove, Parliamentarian (Washington: GPO, 1997).
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Parliamentary Reference Sources: House of Representatives

Appendix A. Annotated Excerpts from Selected
Parliamentary Reference Sources
Appendix A includes excerpts from sections of the includes excerpts from sections of the House Manual, , House Practice, , Deschler’s
Precedents, and , and Cannon’s Precedents with annotations that explain some of the key features for with annotations that explain some of the key features for
using these reference sources. using these reference sources.
Excerpt from the House Manual
This excerpt shows the section of the This excerpt shows the section of the House Manual that presents the U.S. Constitution. that presents the U.S. Constitution.

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Excerpt from House Practice
This excerpt shows Chapter 11 (“Committees”), Section 31, of This excerpt shows Chapter 11 (“Committees”), Section 31, of House Practice. .

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Excerpt from Deschler’s Precedents
This excerpt shows Chapter 23 (“Motions”), Section 6, of This excerpt shows Chapter 23 (“Motions”), Section 6, of Deschler’s Precedents (Volume 7, (Volume 7,
online version). online version).

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Excerpt from Cannon’s Precedents
This excerpt shows Volume VIII, Chapter CCL (“The Previous Question”), Section 2678, of This excerpt shows Volume VIII, Chapter CCL (“The Previous Question”), Section 2678, of
Cannon’s Precedents (online version). (online version).

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Appendix B. Selected CRS Products on House
Procedure
Most of these reports are available to congressional staff through the CRS home page at Most of these reports are available to congressional staff through the CRS home page at
http://www.crs.gov. These reports may also be accessed through the Legislative and Budget http://www.crs.gov. These reports may also be accessed through the Legislative and Budget
Process section of the CRS website at https://www.crs.gov/iap/legislative-and-budget-process. Process section of the CRS website at https://www.crs.gov/iap/legislative-and-budget-process.
These reports are available to the public via the CRS Reports page of Congress.gov at These reports are available to the public via the CRS Reports page of Congress.gov at
https://crsreports.congress.gov/. https://crsreports.congress.gov/.
CRS Report R42843, CRS Report R42843, Introduction to the Legislative Process in the U.S. Congress, by Valerie , by Valerie
Heitshusen. Heitshusen.
CRS Report 95-563, CRS Report 95-563, The Legislative Process on the House Floor: An Introduction, by , by
Christopher M. Davis. Christopher M. Davis.
CRS Report R44001, CRS Report R44001, Introducing a House Bill or Resolution, by Mark J. Oleszek. , by Mark J. Oleszek.
CRS Report R46251, CRS Report R46251, Committee Jurisdiction and Referral in the House, by Mark J. Oleszek. , by Mark J. Oleszek.
CRS Report RL30244, CRS Report RL30244, The Committee Markup Process in the House of Representatives, by , by
Christopher M. Davis and Elizabeth Rybicki. Christopher M. Davis and Elizabeth Rybicki.
CRS Report 98-995, CRS Report 98-995, The Amending Process in the House of Representatives, by Christopher M. , by Christopher M.
Davis. Davis.
CRS Report 98-696, CRS Report 98-696, Resolving Legislative Differences in Congress: Conference Committees and
Amendments Between the Houses, by Elizabeth Rybicki. , by Elizabeth Rybicki.
CRS Report 97-780, CRS Report 97-780, The Speaker of the House: House Officer, Party Leader, and Representative, ,
by Valerie Heitshusen. by Valerie Heitshusen.
CRS Report R46240, CRS Report R46240, Introduction to the Federal Budget Process, by James V. Saturno. , by James V. Saturno.
CRS Report 98-314, CRS Report 98-314, Suspension of the Rules in the House: Principal Features, by Elizabeth , by Elizabeth
Rybicki. Rybicki.
CRS Report R47314, CRS Report R47314, Offering an Amendment on the House Floor Under a Structured Rule:
Current Practice, by Michael Greene and Elizabeth Rybicki. , by Michael Greene and Elizabeth Rybicki.
CRS Report RL32200, CRS Report RL32200, Debate, Motions, and Other Actions in the Committee of the Whole, by , by
Bill Heniff Jr. and Elizabeth Rybicki. Bill Heniff Jr. and Elizabeth Rybicki.
CRS Report RL32207, CRS Report RL32207, Commonly Used Motions and Requests in the House of Representatives, ,
by Christopher M. Davis. by Christopher M. Davis.
CRS Report 98-307, CRS Report 98-307, Points of Order, Rulings, and Appeals in the House of Representatives, by , by
Valerie Heitshusen. Valerie Heitshusen.
CRS Report 98-988, CRS Report 98-988, Voting and Quorum Procedures in the House of Representatives, coordinated , coordinated
by Elizabeth Rybicki. by Elizabeth Rybicki.
CRS Report RL30599, CRS Report RL30599, Expedited Procedures in the House: Variations Enacted into Law, by , by
Christopher M. Davis. Christopher M. Davis.
CRS Report R46603, CRS Report R46603, Bills, Resolutions, Nominations, and Treaties: Characteristics and
Examples of Use, by Jane A. Hudiburg. , by Jane A. Hudiburg.
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Appendix C. House Parliamentary Reference
Information Available Online
The vast majority of the referenced links found throughout this report can be accessed through The vast majority of the referenced links found throughout this report can be accessed through
one of two “gateway” websites maintained by legislative branch organizations: Congress.gov (a one of two “gateway” websites maintained by legislative branch organizations: Congress.gov (a
website of the Library of Congress) and govinfo.gov (a website of website of the Library of Congress) and govinfo.gov (a website of ~~the U.S. Government~~
~~Publishing Office~~GPO). Each of these sites provides an entry point for research into House ). Each of these sites provides an entry point for research into House
procedures. The websites provided for the documents discussed in this report are current as of the procedures. The websites provided for the documents discussed in this report are current as of the
report’s publication date. report’s publication date.
Congress.gov
https://www.congress.gov https://www.congress.gov
Congress.gov is the official website for U.S. federal legislative information. The site provides Congress.gov is the official website for U.S. federal legislative information. The site provides
access to accurate, timely, and complete legislative information for Members of Congress, access to accurate, timely, and complete legislative information for Members of Congress,
legislative agencies, and the public. Congress.gov also contains information on topics such as legislative agencies, and the public. Congress.gov also contains information on topics such as
nominations, public laws, communications, and treaties. It is presented by the Library of nominations, public laws, communications, and treaties. It is presented by the Library of
Congress using data from the Office of the Clerk of the U.S. House of Representatives, the Office Congress using data from the Office of the Clerk of the U.S. House of Representatives, the Office
of the Secretary of the Senate, the GPO, the Congressional Budget Office, and CRS. of the Secretary of the Senate, the GPO, the Congressional Budget Office, and CRS.
govinfo.gov
https://www.govinfo.gov/ https://www.govinfo.gov/
Govinfo.gov is a service of the GPO. The website provides public access to official publications Govinfo.gov is a service of the GPO. The website provides public access to official publications
of the Congress. of the Congress.

Author Information

Sarah B. Solomon Sarah B. Solomon

Analyst on Congress and the Legislative Process Analyst on Congress and the Legislative Process

Acknowledgments
Previous versions of this report were updated by Richard S. Beth, former Senior Specialist on Congress and Previous versions of this report were updated by Richard S. Beth, former Senior Specialist on Congress and
the Legislative Process at CRS; Megan S. Lynch, Specialist on Congress and the Legislative Process; and the Legislative Process at CRS; Megan S. Lynch, Specialist on Congress and the Legislative Process; and
Gail E. Baitinger, former Analyst on Congress and the Legislative Process. Thank you to CRS Visual Gail E. Baitinger, former Analyst on Congress and the Legislative Process. Thank you to CRS Visual
Information Specialist Amber Wilhelm for creating the graphic in this report.Information Specialist Amber Wilhelm for creating the graphic in this report.
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Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan 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 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 not be relied upon for purposes other under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in 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 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 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 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 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. copy or otherwise use copyrighted material.

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