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FirstCongressionalReformBillEnactedsince1946
AnarticlefromCQAlmanac1970

DocumentOutline
Provisions
Background
HouseCommitteeAction
HouseFloorAction
SenateCommitteeAction
SenateFloorAction
Features
CongressOct.8completedactiononthefirstCongressionalreformmeasureenactedsince1946,clearingfortheWhite
HousetheLegislativeReorganizationActof1970(HR17654PL91510).Thebillwasdesignedtoimprovethe
operationsofCongress,incommitteeandonthefloorofbothchambers,toprovideCongresswithbettermeansof
evaluatingtheFederalBudgetandtoimproveCongressionalresourcesforresearchandinformation.
MostprovisionsofPL91510wouldbecomeeffectiveimmediatelybeforenoonJan.3,1971,intimefortheconveningof
the92ndCongress.
Theproductofadecade'seffortbyreformmindedSenatorsandRepresentativesmanyofwhomwerenolonger
MembersofCongressby1970HR17654wasamoremodestreformbillthanthatrecommendedbythe1966reportof
theJointCommitteeontheOrganizationofCongress.ButitwasastrongermeasurethanthatreportedbytheHouse
RulesCommitteeinJune1970.
Althoughthebilldidnottouchuponthesensitiveandcontroversialsubjectsofseniority,theCongressionalRecord,
financialdisclosureorlobbyingregulation,itdidmakesignificantchangesinCongressionalproceduresandresources.
HR17654openedtothepubliceyemoreoftheoperationsofCongressandthepositionsofitsMembersby:
Encouragingmoreopencommitteemeetingsandhearings.
Requiringthatallcommitteerollcallvotesbemadepublic.
Allowingbroadcastingandtelevisioncoverageofcommitteehearings.
ProvidingthatHousetellervotesberecordeduponrequest,endingthesecrecysurroundingMembers'positionsonimportant
amendments.

ThebillwouldexpediteHouseproceedingsby:
AllowingallHousecommitteestositwithoutspecialleavewhiletheHousewasinsessionsolongasitwasnotreadingabill
foramendmentunderthefiveminuterule.
DispensingwiththereadingoftheJournalunlesstheSpeakeroramajorityoftheMemberspresentsoordered.
Allowingthecalloftherollforaquorumtobeendedafteraquorumwasobtained.
Thebillwouldsafeguardtherightsoftheideologicalorpoliticalminorityby:
Writingintotherulesaspecifictimeperiodforadditionalviewstobeaddedtoacommitteereport.
Allowingminoritymembersofacommitteetoselecttwoofthecommittee'ssixpermanentprofessionalstaff.
Statingthatminoritymemberscouldcallwitnessesoftheirchoosingduringatleastonedayofhearingsonameasureortopic.
Requiringthatdebateonaconferencereportbe'evenlydividedbetweenthemajorityandminoritysides.

ProvisionswhichmightslowCongressionalproceedingsbutwhichprovidedmoreopportunityforMemberstobasetheir
voteonknowledgeofaparticularmeasurewould:
Providethatthecommitteereportonabill(andcommitteehearingsonanappropriationsbill)beavailableforatleastthree
daysbeforetheHouseorSenatevotedonthebill.
Providethattherebe10minutes'debateonanyamendmentofferedontheflooroftheHousewhichhadbeenprintedinthe
CongressionalRecordatleastonedaypriortoconsideration.

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ProvidethataconferencereportbeavailableforthreedaysbeforetheHousevotedonitsadoption.

ThebillalsoprovidedforamodernizeddataprocessingsystemforFederalfiscalandbudgetaryinformation,closer
scrutinybyCongressofthecurrentandprojectedcostsofallFederalprograms,increasedstaffassistancefor
Congressionalcommittees,andacontinuingstudyoftheoperationsofCongressbyajointcommittee.
EnactmentoftheCongressionalreorganizationmeasuresurprisedMembersandobserverswhoweredubiousaboutits
chancesforsuccess.
ThepessimismofSenatereformerswasreflectedintheirdecisionnottoconsideranyreformmeasureuntiltheHouse
actedfirst.Inthe90thCongresstheSenatehadspentmorethantwoweeksamendingandapprovingsuchameasure
onlytohaveitdieneglectedintheHouseRulesCommittee.
TheactionoftheHouseRulesCommitteeinreportingoutalegislativereorganizationbillinmid1970markedaturning
point.ButevenaftertheHousebeganconsiderationofthebill,hopesforitspassagedidnotseemtoobright.Three
timesthebillwaslaidasidetotakeupotherbusiness.InearlyAugust,astheHousepreparedtorecessforseveral
weeks,ThomasM.Rees(DCalif.),aleaderofthereformgroup,accusedtheHouseleadershipofstallingconsideration
ofthebill:Ithadbecome,hesaid,theghostbillof1970andmightbecometheghostbillofthecentury.Onemomentit
surfacesandthenthenextitsilentlydisappears.Wehearrumorsofanappearance(onthefloor),butattheappointed
time,itjustnevershowsup.
ButMajorityLeaderCarlAlbert(DOkla.)repliedthattherewasnoattempttostallactiononthebillandsetSept.1517
forfinalHouseactiononthebill.
StructureofHR17654.HR17654containedsixparts,thelastfiveofwhichfiscalcontrols(TitleII),sourcesof
information(TitleIII),Congressasaninstitution(TitleIV),theHouseOfficeofLegislativeCouncil(TitleV)andeffective
dates(TitleVI)appliedprimarilytomattersoutsidetheinternaloperationsofthechambers.
AllofTitleIandsomeofTitleIIdealtwiththerulesoftheHouseandtheSenatewhichgoverncommitteeandfloor
procedures.TheConstitutiongiveseachchambertherighttomakeitsownrules.
TitleIandtherelevantpartsofTitleIIthusfollowedatwopartstyleinHR17654toproposesimilarreformsintherules
ofbothhouseswithoutonehouseseemingtoinfringeupontheother'sprerogative.Eachprovisionaffectingtherulesof
bothchambershadtwosections:oneamendingtherulesoftheHousedirectlytheother,inlanguageidenticalorsimilar
tothatofthe1967reformbillapprovedbytheSenate,amendingtheLegislativeReorganizationActof1946toamend
therulesoftheSenateindirectly.

Provisions
AsclearedforthePresident,HR17654:

TitleITheCommitteeSystem
ThebillrecognizedtherightofboththeHouseandtheSenatetochangetheirownrulesofprocedureatanytime.(The
Constitution,ArticleI,Section5,states:EachHousemaydeterminetheRulesofitsProceedings.)

House
ItamendedtherulesoftheHouseto:
Providethattherankingmajoritymemberofthecommitteepresideatanymeetingfromwhichthechairmanisabsent.(This
wasalreadythecustominmostcommittees.)
Providethatcommitteebusinessmeetingsandhearingsbeopentothepublicunlessthecommitteebymajorityvotedecides
otherwise.(In1969,43percentofallHousecommitteemeetingswereclosedtothepublic.TheHouseAppropriations
Committeeheldallitsmeetingsbehindcloseddoorsonly10percentofthe1969meetingsoftheHouseEducationandLabor
Committeewereclosed.1969Almanacp.1031)
Requirethatallrollcallvotestakenincommitteeandeachmember'svotebemadepublicandthatcommitteereportson
billscontainthevotebywhichthecommitteeorderedthebillreported.(Underexistingrules,suchvoteswerenotnecessarily
madepublic.)
Providethatcommitteereportsonbillsbefiledwithinsevencalendardays(excludingdaystheHousewasnotinsession)
afteramajorityofthecommitteefiledawrittenrequestthatthereportbesubmitted.ThisprovisiondidnotapplytotheHouse
RulesCommitteewithregardtoHouserulesandHousebusiness.(Underexistingrules,thechairmanhadthedutytoreporta
billandacttobringittoavoteonthefloor.)
Prohibitproxyvotingincommitteeexceptwhenthecommittee'swrittenrulespermitit,whentheproxyislimitedtoaspecific
matter,andis,inwriting,designatingthepersontowhomitisgiven.(ProxyvoteswerenotmentionedinexistingHouserules
differentcommitteesallowedthemindifferentcircumstances.)
Allowcommitteemembers(whoindicatethisintention)threedays(excludingSaturday,Sundayandlegalholidays)tofile
supplementary,minorityoradditionalviewstobeincludedwiththecommitteereportonabillorothermatter.Thisprovision
didnotapplytotheHouseRulesCommittee.(Therewasnosimilarprovisioninexistingrulesgenerally,timewasallowedfor
thefilingofsuchviews.)
ProhibittheHousefromconsideringanybillorothermatter(exceptfromtheAppropriations,HouseAdministration,Standards,
orRulesCommittees)unlessthecommitteereportonthemeasurehasbeenavailableforatleastthreedays(excluding
Saturday,Sundayandlegalholidays)priortoconsideration.Thisruledidnotapplytodeclarationsofwaroremergency,orto
legislativevetoprocedures,orexecutivereorganizationplans.(Therewasnosuchprovisioninexistingrules.)

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ProhibittheHousefromconsideringanygeneralappropriationsbilluntilprintedcommitteehearingsandthereportonthebill
havebeenavailableforatleastthreedays(excludingSaturday,Sundayandlegalholidays)priortoconsideration.(Asimilar
provisioninexistingHouserulesdidnotexcludeSaturdays,Sundaysandholidays.)
AuthorizetheSpeakerifnomotionisofferedforHouseconsiderationofabillwithinsevendaysafteraruleforits
considerationhasbeengrantedtorecognizeamemberofthecommitteethatreportedthebilltomoveforconsideration,if
soauthorizedbythecommittee.
Specifyproceduresbywhichfundsareprovidedtomeetcommitteeexpenses.(Existingrulesdidnotcontainsuchprovisions,
buttheproceduressetforthweregenerallyfollowed.)
Requirethatnolessthanonethirdofacommittee'sfundsbeusedforminoritystaff.(Therewasnosuchprovisioninexisting
rules.)
Requirecommitteestoannouncehearingsatleastoneweekinadvanceunlessthereisgoodreasonthattheybeginearlier.
ThisprovisiondidnotapplytotheHouseRulesCommittee.(Therewasnosuchprovisioninexistingrules.)
Providethatamajorityoftheminoritypartymembersofacommitteeareentitledtocallwitnessesduringatleastonedayof
hearingsonamatter.(Manycommitteesbycustomallowedminoritymembersthisopportunity.)
Allowanyopenhearingtobebroadcastoverradioortelevisionifmajorityvoteofthecommitteeinvolvedpermitsandifthe
broadcastiscarriedoutinaccordancewithrulesspecifyingthatcoverageshouldbelive,withoutcommercialsponsorshipno
subpoenaedwitnessbephotographed,orthetestimonybroadcast,withouthisconsentandequipmentbelimitedsoasnotto
obstructthehearings.(BroadcastingwasnotpermittedunderexistingHouserules.)
ProvidethatallcommitteescouldsitwithoutspecialleavewhiletheHousewasinsessionexceptwhenabillwasbeingread
foramendmentunderthefiveminuterule.ThefiveminuterulelimitationwouldnotapplytotheAppropriations,Government
Operations,InternalSecurity,Rules,andStandardsCommittees.(Underexistingrules,onlytheGovernmentOperations,
Rules,Standards,andInternalSecurityCommitteescouldsitwithoutspecialleavewhiletheHousewasinsession.)
Requireeachstandingcommittee(excepttheAppropriations,HouseAdministration,Rules,andStandardsCommittees)to
reportannuallyonitsactivitiesreviewingtheexecutionoflawsenactedwithinitsjurisdiction.(Committeesalreadypossessed
thisreviewfunction,buthadnotbeenrequiredtoreportonit.)
Allow10minutes'debateonanyamendmentofferedonthefloorevenifdebatehasbeenclosedonthesectiontowhichthe
amendmentisproposedsolongastheamendmenthasbeenprintedintheCongressionalRecordatleastonedaybefore
consideration.(Underexistingrules,anamendmentreceivednoexplanationatallduringconsiderationofabillwhena
majorityoftheCommitteeoftheWholeagreedtocutoffdebateonasectionbeforetherehadbeenanydebateonthe
amendment.)
Providethat,uponrequestofonefifthofaquorum,atellervoteberecordedbyclerksorelectronicdevicesthatthevotebe
takeninnolessthan12minutesandthattherecordincludethenamesofMembersvotingfor,againstandnotvotingonthe
question.(Underexistingrules,onlytheoutcomeofsuchvoteswasrecorded,notthepositionsofMembersvoting.All
amendmentswereacceptedorrejectedintheCommitteeoftheWholebyvoice,standing,ortellervotes,onwhichMembers'
positionsremainedunknown.)
Providethatonceaquorumisobtained,thecalloftheHouseforaquorumcanbeendedthatfor30minutesfromthe
beginningofthecallMembersmayregistertheirpresencebysigninginontallysheets.(Underexistingrules,oncethecallof
theHouseforaquorumwasbegun,theentirerollhadtobecalled,whichtookatleast3035minutes.)
Providefor10minutes'debateonamotiontosendabillbacktocommitteewithinstructions,withthetimedividedevenly
betweenthepersonmakingthemotionandthepersonsopposed.(Inexistingpractice,aresolutionissuedbytheRules
Committeeforconsiderationofabillusuallyspecifiedthattherewouldbenodebateonamotiontorecommit.)
RequirethateveryconferencereportbeprintedasaHousereportandbeaccompaniedbyanexplanatorystatement
preparedjointlybyHouseandSenateconferees.(Inexistingpractice,thereportwasprintedasaHousereportbutonly
Houseconfereespreparedsuchastatement.)
Dividedebateonaconferencereportevenlybetweenmajorityandminority.(Inexistingpractice,suchtimewasnotformally
dividedandwascontrolledbythechairmanoftheconferees.)
Forbidconfereestoincludeanylanguageinaconferenceversionofabillwhichconcernsatopicwhichneitherchambersent
toconferenceortomodifyanytopicbeyondthescopeofthedifferingversionsofthebillsenttoconference.(Existingrules
statedthataconferencereportshouldnotincludematternotsenttoconferencebyeitherchamber.)
ProhibittheHousefromconsideringaconferencereportunlessthereportandaccompanyingstatementhavebeenprintedin
theCongressionalRecordthreecalendardays(excludingSaturday,Sundayandlegalholidays)priortoconsiderationand
copiesareavailableonthefloor.Thisrulewouldnotapplyduringthelastsixdaysofasession.(Existingrulesprovidedonly
thattheHousemightnotconsideraconferencereportexceptinthelastsixdaysofasessionuntilithadbeenprintedin
theCongressionalRecord,andconferencereportswereoftenbroughtupforavotewithlittleornonotice.)
AllowaseparateHousevote,upontherequestofanyMember,onanynongermaneamendmentaddedbytheSenatetoa
Housepassedbill(requiringonlyamajorityvotetoapprovetheamendment)prohibitHouseconfereesfromagreeingtoa
nongermaneSenateamendmentunlessauthorizedtodosobyavoteonthatamendmentbytheHouse.(Inexistingpractice,
theHousehadoftenbeenforcedtovoteonthebillasawhole,havingtodefeatthebilloracceptthenongermane
amendment.ThisnewruleappliedthesamerulestonongermaneSenateamendmentsaswerealreadyappliedtolegislative
amendmentstoappropriationsbills.Inexistingpractice,confereesreportedsuchamendmentsindisagreementandmovedfor
aHousevotetoagreetothem.)
DirectthattheJournalnotbereaddailyunlesstheSpeakeroramotionsupportedbyamajorityoftheMemberspresentso
order.(Suchreadingwasroutinelyomittedbyunanimousconsentunderexistingpractice,buttheobjectionofoneMember

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wasenoughtorequirethattheJournalbereadinfull,atacticoccasionallyusedtodelayortoforceactiononsomemeasure.
1968Almanacp.647)
ProvidethattheResidentCommissionerfromPuertoRicobeelectedtostandingcommitteesjustasanyelectedMemberof
theHouseandthathebeallowedtovoteincommittee.(Underexistingrules,theCommissionerwasanadditional,nonvoting
memberoftheAgriculture,ArmedServicesandInteriorCommittees.)

Senate
AmendedtheLegislativeReorganizationActof1946toamendtherulesoftheSenateto:
Allowamajorityofacommitteetocallameetingwhenthechairmandoesnotcallameetingonrequest.(TheHouse,butnot
theSenate,hadthisprocedureavailable.)
Providethattherankingmajoritymemberofthecommitteepresideatanymeetingfromwhichthechairmanisabsent.(This
wasalreadythecustominmostcommittees.)
RequirethatSenatecommitteesadoptandpublishrulesofcommitteeprocedure.(Underexistingrules,therewasnosuch
requirement.)
Providethatcommitteebusinessmeetingsbeopentothepublicexceptduringsessionstomarkupbills,tovoteorwhenthe
committeebymajorityvotedecidesotherwise.(In1969,28percentofallSenatecommitteemeetingswereclosedtothe
public,amuchlowerpercentagethanintheHouse.1969Almanacp.1031)
Providethatcommitteehearingsbeopentothepublicexceptwhenthecommitteedecidesthatthetestimonymayrelateto
nationalsecurity,mayreflectadverselyonanindividual'scharacterorreputationormaycontainconfidentialinformation.
RequirethatallrollcallvotestakenincommitteeonameasureoramendmentandthepositionsofSenatorsvotingbe
announcedinthecommitteereportonthatmeasureunlesspreviouslymadepublic.
Providethatcommitteereportsonbillsbefiledwithinsevencalendardays(excludingdaystheSenateisnotinsession)after
amajorityofthecommitteefilesawrittenrequestthatthereportbefiled.
Providethatnoproxyvotemaybecastonamotionto.reportabillifcommitteerulesforbidtheuseofaproxyonsucha
motionprescribethatproxiesonlybevotedonsuchamotionupontheaffirmativerequestofanabsentmember.
Allowcommitteemembers(whoindicatethisintention)threedaystofilesupplementary,minorityoradditionalviewstobe
includedwiththecommitteereportonabillorothermatter.(Therewasnosimilarprovisioninexistingrulesgenerally,time
wasallowedforthefilingofsuchviews.)
ProhibittheSenatefromconsideringanybillorothermatterreportedfromastandingcommitteeunlessthecommitteereport
onthemeasurehasbeenavailableforatleastthreedays(excludingSaturday,Sundayandlegalholidays)priorto
consideration.Thisruledidnotapplytodeclarationsofwaroremergency,tolegislativevetoproceduresortoexecutive
reorganizationplans,andcouldbewaivedbyagreementoftheSenatemajorityandminorityleaders.(Therewasnosuch
provisioninexistingrules.)
Specifyprocedurestogovernprocurementoffundsforcommitteesinexcessoftheannual810,000limit.
Requirecommittees(excepttheSenateAppropriationsCommittee)toannouncehearingsatleastoneweekinadvance
unlessthereisgoodreasonthattheybeginearlier.(Therewasnosuchprovisioninexistingrules.)
Providethatamajorityoftheminoritypartymembersofacommittee(excepttheSenateAppropriationsCommittee)are
entitledtocallwitnessesduringatleastonedayofhearingsonamatter.(Manycommitteesbycustomallowedminority
membersthisopportunity.)
Allowanyopenhearingtobebroadcastoverradioortelevisionunderwhateverrulesthecommitteemayadopt.
ForbidSenatecommittees(excepttheAppropriationsCommittee)tositwhiletheSenateisinsessionunlessspecialleave
hasbeenobtainedfromtheSenatemajorityandminorityleaders.
Requireeachstandingcommittee(excepttheSenateAppropriationsCommittee)toreportannuallyonitsactivitiesreviewing
theexecutionoflawsenactedwithinitsjurisdiction.(Committeesalreadypossessedthisreviewfunctionbuthadnotbeen
requiredtomakereports.)
RequirethateveryconferencereportbeprintedasaSenatereportandbeaccompaniedbyanexplanatorystatement
preparedjointlybyHouseandSenateconferees.(Byexistingcustom,onlyHouseconfereespreparedsuchastatementand
conferencereportswereusuallyonlyprintedasHousereports.)
Dividedebateonaconferencereportevenlybetweenmajorityandminority.(Byexistingcustom,suchtimewasnotformally
dividedandwascontrolledbythechairmanoftheconferees.)
RequireaquorumoftheSenateAppropriationsCommitteetobepresentforavotetoreportanappropriationsbillfrom
committee.(ThiswasCommitteepracticebutexistingrulesexemptedtheAppropriationsCommitteefromtherequirement.)
RenametheSenateBankingandCurrencyCommitteetheSenateBanking,HousingandUrbanAffairsCommittee.
ReducethesizeofcertainSenatecommitteesprovidethat,inthefuture,Senatorsmaybemembersofonlytwomajor
committeesandoneminor,select,orjointcommitteethatnoSenatormayserveonmorethanoneoftheArmedServices,
Appropriations,FinanceorForeignRelationsCommitteesthatnoSenatormayholdthechairmanshipofmorethanonefull

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committeeandonesubcommitteeofamajorcommittee.(ThisprovisionwouldnotdepriveanySenatorofanycommittee
positionorchairmanshipcurrentlyheld,butwouldapplytoallfutureassignments.)
CreateaSenateCommitteeonVeterans'Affairs.

TitleIIFiscalControls
DirectedtheSecretaryoftheTreasuryandtheDirectoroftheOfficeofManagementandBudgettosetupandmaintaina
standardizeddataprocessingsystemforFederalbudgetaryandfiscaldata.
DirectedtheSecretaryandDirectortofurnishtoCongressionalcommittees,uponrequest,informationonthelocationand
natureofavailabledataonFederalprograms,activities,receiptsandexpenditures.
DirectedtheComptrollerGeneraltoreviewandanalyzetheresultsofGovernmentprogramstomakecostbenefitstudiesof
theprogramsatthedirectionofCongressoronhisowninitiativeoruponrequestofanyCongressionalcommitteetoassist
CongressionalcommitteesinanalyzingcostbenefitstudiesfurnishedbyanyFederalagenciesorinconductingsuchstudies.
(SeestoryonbillexpandingresponsibilitiesofComptrollerGeneral.)
RequiredthatthePresidentsendCongressaspartoftheBudgetfiveyearforecastsofthecostsofeveryneworexpanded
Federalprogram.
RequiredthatthePresidentupdatetheBudgetforthenextfiscalyearandthefiveyearcostforecastsatmidyear,beginning
with1972,andtransmittoCongressasupplementalsummaryofthoserevisionsbyJune1eachyear.
RequiredtheComptrollerGeneral(oradesignatedemployeeoftheGeneralAccountingOffice(GAO))toexplaintoany
CongressionalcommitteesorequestinganyGAOreportrelevanttolegislation,appropriationsorprogramswithinthe
committee'sjurisdiction.
DirectedtheComptrollerGeneraltodelivercopiesofGAOreportstotheAppropriationsandGovernmentOperations
Committeesandtoanyothercommitteesrequestingthem.
LimitedtooneyeartheperiodoftimeforwhichaGAOemployeecouldbeassignedfulltimetoworkwithanyCongressional
committee.
RequiredFederalagenciestoreporttotheGovernmentOperationsCommitteesnolaterthan60daysafteraGAOreport
maderecommendationsconcerningthatagencywhatactionhasbeentakenwithrespecttothoserecommendations.
RequiredtheHouseAppropriationsCommittee,within30daysafterthePresidentsenttheBudgettoCongress,tohold
hearingsontheBudgetandreceivetestimonyfromtheDirectoroftheOfficeofManagementandBudget,theSecretaryofthe
Treasury,andthechairmanoftheCouncilofEconomicAdvisersandthatsuchhearingsbeopenexceptwhenthenational
securityrequiresotherwise.
Requiredthatcommitteereportsonallmeasuresexceptrevenuebillsincludecostestimatesfortheprogramsaffectedfor
thatyearandthenextfiveyears.ThisprovisiondidnotapplytotheHouseAppropriations,Administration,Rules,and
StandardsCommitteesortheSenateAppropriationsCommittee.

TitleIIISourcesofInformation
IncreasedtosixfromfourthenumberofpermanentprofessionalstaffforeachCongressionalstandingcommittee,twoof
whom,inadditiontooneofthesixpermanentclericalstaffmembers,mightbeselectedbyamajorityofthecommittee's
minoritypartymembers.ThisprovisiondidnotapplytotheHouseandSenateAppropriationsCommitteesortotheHouse
StandardsCommittee.
AuthorizedstandingcommitteeswiththeapprovaloftheSenateRulesorHouseAdministrationCommitteetohire
temporaryconsultants.
AuthorizedstandingcommitteeswiththeapprovaloftheSenateRulesorHouseAdministrationCommitteetoprovidestaff
memberswithspecializedtraining.
AuthorizedsalariesofSenatecommitteestaffpersonnelcomparabletothoseofHousecommitteestaffpersonnel.
RedesignatedtheLegislativeReferenceServicetheCongressionalResearchService,redefiningitsdutiestoassist
Congressionalcommitteesbyprovidingresearchandanalyticalservices,records,documentsandotherinformationanddata,
includingmemorandaonproposedlegislationandexpandingitsstaffresources.
AuthorizedtheHouseParliamentarian,afterthecompilationofparliamentaryprecedentsoftheHousecurrentlyunderway
(thefirstsince1934)wascompleted,tocompilesuchprecedentseveryfiveyears.

TitleIVCongressasanInstitution
CreatedaJointCommitteeonCongressionalOperationstocontinuethestudyoftheoperationsandorganizationofCongress
andtorecommendimprovements,includingpossibleusesofautomaticdataprocessingsystems.
AbolishedtheJointCommitteeonImmigrationandNationalityPolicy,which,establishedin1952,hadnevermet.
CreatedaCapitolGuideServicetoprovidefreetoursoftheCapitol.

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ProvidedthatCongresstakea30dayrecessinAugustofeverynonelectionyear,unlessithadalreadyadjournedorastate
ofwarexisted.
ConvertedtheHousepayrollsystemfromthebasepaystandardusing1945figurestoagrosspaystandardreflectingthe17
payraisessince1945andshowingtheactualamountspaidtoHouseemployees.
ProvidedthatSenatepagesbebetween14and18yearsoldandthatHousepagesbebetween16and18andauthorized
theconstructionoftheJohnW.McCormackResidentialPageSchool.
AuthorizedtheSpeakeroftheHousetoappointacommissiontoplanandoverseethemodernizationoftheHousegalleries,
includingtheenclosureofthegallerieswithsoundproofglass.

TitleVOfficeoftheLegislativeCounsel,HouseofRepresentatives
EstablishedtheOfficeofLegislativeCounselfortheHouseofRepresentatives,expandinganddefiningitsduties.

TitleVIEffectiveDates
ProvidedthatmostoftheprovisionsofHR17654,withafewexceptions,wouldbecomeeffectiveimmediatelybeforenoon
Jan.3,1971.

Background
References.CongressandtheNationVol.Ip.1408,1412,1418,1422:Vol.IIp.894,905,907,912,919:1969
Almanacp.483.
ThefirstcomprehensivereorganizationofCongressitscommitteesanditsprocedureswasin1946.TheLegislative
ReorganizationActof1946(PL79601)reducedthenumberofstandingcommittees,definedtheirjurisdiction,setcertain
rulesforcommitteefunctioning,authorizedalegislativebudget,increasedcommitteestaff,setJuly31asthe
adjournmentdateforeachyear,increasedsalariesofSenatorsandRepresentatives,andrequiredlobbyiststoregister
andreporttheirexpenditures.
PL79601wastheresultofareportandstudybytheJointCommitteeontheOrganizationofCongress,setupin1945.
andheadedbySen.RobertM.LaFolletteJr.(Prog.Wis.19251947)andRep.A.S.MikeMonroney(DOkla.19391951,

Senate19511969).

ThereformeffortwhichproducedtheLegislativeReorganizationActof1970beganearlyinthe1960s,ledbySen.
JosephS.Clark(DPa.19571969).
Congressin1965setupaJointCommitteeontheOrganizationofCongress,thefirstlargescaleefforttoreform
Congressionaloperationssince1946.TheJointCommitteewasheadedbyMonroney,thenaSenator,andbyRep.Ray
J.Madden(DInd.).
TheJointCommitteefileditsreportin1966,recommendingawiderangingsetofreformswhichincludedtightened
committeeprocedurestocurtailthepowersofchairmen,limitedcommitteeassignments,increasedcommitteestaff
resources,strongerfiscalcontrols,animprovedLegislativeReferenceService,arevisedCongressionalRecordand
strongerlobbyingregulation.
1967Bill.TheSenateMarch7,1967,approvedabill(S355)containingmostoftheCommittee'srecommendations,by
arollcallvoteof759.Passageofthebillcameafter17daysofdebateand31rollcallvotes.TheSenateconsidered75
amendmentstothebill,accepting36.
S355didnotdealwithfloorprocedure,theCongressionalRecordorthesenioritysystem,butitsprovisionsconcerning
committeeproceduresarousedstubbornoppositionintheHouse.SpeakerJohnW.McCormack(DMass.)referredthe
billtotheRulesCommitteewhereitdiedattheendofthe90thCongress.TheCommitteeheldonedayofhearingsbut
tooknofurtheraction.AlatesessionattemptbyreformmindedRepresentativestoprythebilloutofCommitteebyusing
parliamentarystallingtacticsfailed.
1969Action.KarlE.Mundt(RS.D.)introducedabill(S844)earlyinthe91stCongress,whichincorporated,withthe
exceptionofcertainlobbyingandhousekeepingprovisions,theprovisionsofS355.TheSenateGovernmentOperations
CommitteereportedS844withoutamendmentMay23,1969,butthebillwasneverbroughtupforflooraction.Mundt
reportedlywaswaitingfortheHousetoactfirstonsuchreformlegislation.
AspecialsubcommitteeoftheHouseRulesCommitteewassetupinApril1969toconsiderlegislativereform.The
subcommitteewaschairedbyB.F.Sisk(DCalif.)andwascomposedofRichardBoiling(DMo.),JohnYoung(DTexas),H.
AllenSmith(RCalif.)andDelbertL.Latta(ROhio).

HouseCommitteeAction
TheHouseRulesCommitteeJune17reportedacleanbill(HR17654HRept911215).theLegislativeReorganization
Actof1970.
ThefirstmajorCongressionalreformlegislationtoemergefromaHousecommitteein24years,HR17654didnot
proposeanychangeinthesenioritysystem,nordiditincludeprovisionsforelectronicvotingorreformofthe
CongressionalRecord.
TheRulesCommittee,unabletoagreeonreformsintwoothercontroversialareas,approvedaseparateresolution(H
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Res1031)turningtighterlobbyingrestrictionsandbetterregulationofcampaignspendingovertotheHouseCommittee
onStandardsofOfficialConduct.(SeeHousehearingsoncampaignspendingbill.)
Thebillwassenttothefloorunderarulepermittinganygermaneamendmenttobeoffered.Theonlyexceptionwasthat
noamendmentstochangethejurisdictionofcommitteessuchassplittingtheEducationandLaborCommitteewere
tobeconsidered.
Hearings.TheHouseRulesSpecialSubcommitteeheldhearingsonadraftbillincorporatingnumerousproposed
CongressionalreformsinOctober,NovemberandDecember1969.(1969Almanacp.483)
PROVISIONS.AsreportedbytheCommittee,themajorprovisionsofHR17654:

TitleITheCommitteeSystem
WroteintotheHouserulescertaincommitteepracticesandimprovementsinfloorprocedures:
Requiredcommitteemeetingsandhearingstobeopentothepublicunlessthecommitteevotedtoclosethem.
Allowedbroadcastingandtelevisioncoverageofcommitteehearingsundercertainregulations.
Requiredcommitteestoannouncevotestakenincommitteeuponamotiontoreportabill.
Limitedtheuseofproxyvotesincommittee.
RequiredcommitteereportsonbillstobeavailableforthreedaysbeforethebillwasconsideredbytheHouse.
RequiredatwothirdsvotebytheHousetoacceptnongermaneamendmentsaddedbytheSenatetoHousepassedbills.

TitleIIFiscalControls
ProvidedfortheExecutiveBranchtofurnishCongressmoreextensivebudgetaryinformation.

TitleIIISourcesofInformation
Increasedthesizeofprofessionalcommitteestaffs.
ProvidedCongresswithnewsourcesofinformationandresearch.
ExpandedtheLegislativeReferenceServiceintotheCongressionalResearchService.

TitleIVCongressasanInstitution
CreatedacommitteetodevelopanautomaticdataprocessingsystemforCongress.
ProvidedforanewCapitolGuideService.
RequiredthatCongressionalpagesbeofcollegeage.
Rule.TheHouseRulesCommitteesentHR17654tothefloorforconsiderationunderarule(HRes1093)which
specifiedthatnoamendmentcouldbeaddedtothebilltochangethejurisdictionofanycommitteeoftheHouse.

HouseFloorAction
TheHouseSept.17bya32619rollcallvotepassedHR17654,theLegislativeReorganizationActof1970.TheHouse
accepted36amendmentstothebillandrejected29.ThebillthenwassenttotheSenate.(Vote171,p.32S)
HR17654containedprovisionsapplyingtotheSenatewhichwereinmostcasesidenticaltothoseinS844,reportedin
theSenateinMay1969,andtoS355,whichtheSenatehadapprovedin1967.
TheHousehad,duringdebate,clearedawayamajorobstacletoSenateacceptanceofthebillbyamendingittomodify
aprovisionwhichrequiredatwothirdsvoteoftheHousetoapproveanynongermaneamendmentaddedbytheSenate
toaHousepassedbill.
DuringelevendaysofdebateJuly1316,20,2729,Sept.1517theHouseconsidered65amendmentstothebill.
Chiefamongthe36amendmentsacceptedwerethoserequiringthatallrollcallvotestakenincommitteebemade
public,thattellervotesoccurringduringfloorconsiderationofabillberecordeduponrequestinthesamemannerasroll
callvotes,andthattherebeathreedayperiodduringwhichaconferencereportwouldbeavailablebeforetheHouse
votedonthefinalversionofabill.(Majoramendmentsrejected,boxthispage)

Debate
BeforedebatebeganJuly13,abipartisangroupofMembersannouncedtheywouldattempttoaddaseriesof
amendmentstoHR17654torequiremorerecordvotesintheHouse,toopenmorecommitteeproceedingstothepublic,
toprovidemoretimeandinformationfordebateandtostreamlineHouseoperationsfurther.Nineofthegroup'sten
majoramendmentswereacceptedbytheHouse.
BarberB.ConableJr.(RN.Y.)andSamM.Gibbons(DFla.),thegroup'sspokesmen,saidthattheywereseekingtoend

secrecyintheHouse:SecrecyunderminesthedemocraticprocessandsapspublicconfidenceintheHouseasa
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responsiveandeffectivelegislativebody.

July13
Asdebatebegan,B.F.Sisk(DCalif.),chairmanofthespecialRulessubcommitteewhichwrotethebill,saidthatitwas
notallIwouldlike,butthatthebestreformproposalsintheworldwereofnoimportanceiftherewerenotthevotesto
approvethemintheHouse.
GeorgeH.Mahon(DTexas),chairmanoftheAppropriationsCommittee,saidhefearedthatreformminded
Representativeswereseekingtoeasetherulestofacilitatepassageofliberallegislation.FredSchwengel(RIowa)

repliedthatthereformersonlywerelookingformoreefficientandwisehandlingofbusiness.

July14
TheHouseadoptedtworeformamendmentsanddefeatedtwoothersinthefirstdayofflooractiononamendments.
Byatellervoteof7154,theHouseagreedtoanamendmentproposedbySchwengeltoabolishvotingbyproxiesin
committee.Byvoicevote,theHousealsoagreedtoanamendmentproposedbyDanteB.Fascell(DFla.)andbacked
bythebipartisanreformgroupwhichrequiredthatallrecordvotestakenincommitteebemadepublicalongwiththe
positiontakenbyeachvotingMember.
TheHouserejectedanamendmentproposedbyWilliamD.Hathaway(DMaine)whichcalledforanopensessionrollcall
votebycommitteememberstodetermine,daybyday,whetheracommitteemeetingorhearingforthedaywouldbe
openorclosedtothepublic.Thisamendmentendorsedbythebipartisangroupwasrejectedbyatellervoteof102
132.
TheHousealsorejectedbyvoicevoteanamendmentbyFascelltodilutethepowerofcommitteechairmenbyproviding
thatthemajorityofacommitteecouldelectatemporarychairmaniftheydeterminedthatthechairmanwasunableto
carryouthisduties.

July16
TheHouseadoptedanamendmentproposedbyFrankThompsonJr.(DN.J.)toprovidethatnolessthanonethirdofa
committee'sfundsforpersonnelbeusedtofurnishtheminoritymembersofthecommitteewithinvestigatorystaff.The
amendmentwasadoptedbyatellervoteof10563.Anumberofcommitteeandsubcommitteechairmenopposedthe
amendment,whichwassupportedbythebipartisanreformgroup.

July20
Housereformersnarrowlywonamajorbattle,defeatinganamendmentwhichwouldhavestruckfromthebillthe
provisionsallowingbroadcastingofcommitteehearings.ProposedbyDavidW.Dennis(RInd.)whoobjectedtothe
physicaldisruptionofcommitteeproceedingswhichbroadcastingwouldentailtheamendmentwasdefeatedbya
tellervoteof9396.

July27
SupportersofHousereformwonamajorvictorywithadoption,byvoicevote,ofanamendmentallowingvotesof
MembersonatellervoteduringconsiderationofabillintheCommitteeoftheWholetoberecordedattherequestof
onefifthofaquorum.
Underexistingrules,tellerstallythetotalnumberofMembersvotingforandagainstaquestion,reportingthetotalbut
notthenamesofwhovotedandhow.Undertheamendedrules,onefifthofaquorumoftheCommitteeoftheWhole
(20)couldaskthatclerksrecordthenamesofMembersvotingontellervotes,howtheyvoted,andthenamesof
Memberswhodidnotvote.
Theamendment,cosponsoredbyThomasP.O'NeillJr.(DMass.),CharlesS.Gubser(RCalif.)and182otherMembers,
includedaprovisionstatingthatMemberswouldhaveatleast12minutesfromthebeginningofthetellervotetoreach
thefloorandbecounted.(Tellervotesusuallyweretakeninfiveminutesorless.)Theamendmenthadbeenrejectedby
a66voteintheRulesCommittee.
O'NeillpointedoutthattheHousedisposedofmanyofitscrucialand.controversialissuesbytellervote,thusconcealing
thepositionswhichRepresentativestookonthosequestions.Ifwewererecordingthesevotes,ifthepeopleathome
knewhowweactuallyvoted,Ibelieveweprobablywouldhavehadsomedifferentresults,hesaid.Probablywewould
havepassedmorepiecesoflegislation.(Box.,p.454)
MajorityWhipHaleBoggs(DLa.)saidthatadoptionoftheO'NeillGubseramendmentmarkedanhistoricdaywhich
willmaketheHouseofRepresentativestrulyrelevant.Theexistingsystemofnonrecordedtellervotes,hesaid,wasa
majorreasonforabsenteeismofMembers.
Priortoitsadoption,theO'NeillGubseramendmentwasmodifiedbyamendmentswhichrequiredthatthenamesof
Membersnotvotingalsoberecordedandwhichprovidedthatvotesmightberecordedbyclerksorbyelectronic
devices.
TheHousebyvoicevoterejectedanamendmenttotheO'NeillGubseramendmentwhichwouldhaveprovidedthata
recordedtellervotecouldnotbedemandedonanamendmentunlesstheamendmenthadbeenprintedinthe
CongressionalRecordatleast24hoursbeforeitsconsideration.ThisamendmentwasproposedbyJamesC.Cleveland
(RN.H.),whoexplainedthatitwasneededtoensurethataMemberknewonwhatamendmenthewasvoting.
ThoughstatingthathesympathizedwiththeproblempresentedbyCleveland,DonaldM.Fraser(DMinn.)saidthatthe
implicationofargumentssupportingtheamendmentwasthatitwasOKtobeignorantofwhattheamendmentisas
longasyouarenotontherecordandonlywhenyouaregoingontherecordisitessentialthatyouunderstandwhatis
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beingvotedupon.
Afterlengthydebateontheuseofelectronicdevicestorecordvotes,theHousebyvoicevoterejectedasubstitute
amendmentproposedbyH.AllenSmith(RCalif.)whichprovidedforelectronicrecordingoftellervotes.TheHousethen
acceptedanamendmentallowingtheHousetoadoptanelectronicsystemforrecordingrollcallvotes.
TheHouseacceptedbyvoicevoteanamendmentproposedbyJohnN.Erlenborn(RIll.),asamendedbyasubstitute
proposedbyTomRailsback(RIll.),toprovideforatleast10minutesofdebateuponanyamendmentofferedonthefloor
providedtheamendmenthadbeenprintedintheCongressionalRecordatleastonedaypriortofloorconsideration.The
purposeoftheamendmentwastoguaranteesometimeforexplanationofanyproposedamendmentevenafterthe
CommitteeoftheWhole,byamajorityvote,cutoffdebateonaparagraphorasectionofabill.Thisamendmentwas
oneofthosebackedbythebipartisanreformgroup.
TheHouserejectedbyvoicevoteanamendmentproposedbyPaulG.Rogers(DFla.)torequirethatallvoteson
passageofappropriationsbillsbebyrollcall.BarberB.ConableJr.(RN.Y.)pointedoutthatinthelastfouryearsthe
Househadapproved30of72appropriationsbillsbynonrecordvotes.

July28
TheHousedefeatedamajorchallengetothesenioritysystemthroughwhichcommitteechairmenarechosen,rejecting
twoamendmentswhichattemptedtomodifythesystem.
TheprimaryamendmentwasofferedbyHenryS.Reuss(DWis.)anddefeatedbyatellervoteof73160.Itwouldhave
providedthatseniorityneednotbethesoleconsiderationintheselectionofcommitteechairmen.
Reusssaidthatawoodenapplicationofthesenioritycustomisaluxurywecannolongerafford.Theamendment,he
said,wouldleavetothepartieseachofwhichhadappointedacommitteetostudytheseniorityrulethefinaldecision
onaparticularmethodforselectingchairmen.(Box,p.456)
TheHousealsorejected,byatellervoteof28196,anamendmentproposedbySchwengelasasubstituteforthe
Reussamendment.Thesubstituteamendmentprovidedthatthemajoritypartycommitteemembersshouldselecttheir
chairmanfromthethreeseniormajoritymembersofthecommittee.
OpponentsoftheReussandSchwengelamendmentswarnedthatcampaignsforchairmanshipswouldprovidethe
opportunityforpressuregroupstowheelanddealinsupportoftheircandidateforchairmanofcertaincommittees.
KenHechler(DW.Va.)saidthatthelongerIserveintheCongress,themoreevilsIseeinthesenioritysystem,which

putsapremiumonthosewhocansurviveelectionafterelection,regardlessoftheirability,theirresponsivenesstopublic
attitudesandtheirphilosophyasitrelatestothepoliciesoftheirpoliticalparty.

July29
TheHouseacceptedanamendmentproposedbyRichardC.White(DTexas)toallowaquorumcalltobedispensedwith
afteraquorumhadbeenobtainedandtoallowMemberstoanswerthecallbysigningtallysheetsfor30minutesafter
thecallhadbegun.Theamendment,endorsedbythebipartisanreformgroup,wouldshortenconsiderablythetime
consumedbytheHouseinsuchcalls.Itwasapprovedbyastandingvote,6820.(Box,thispage)
ApointoforderwassustainedagainstanamendmentproposedbyAndrewJacobsJr.(DInd.)tobartheRules
Committeefromreportingbillsunderaclosedrule,whichforbadeanyamendmentsfrombeingofferedonthefloor.
ThepointoforderwasraisedagainsttheamendmentbecauseitlimitedthejurisdictionoftheHouseRulesCommittee.
TheruleforconsiderationofHR17654hadspecificallyprohibitedthechangingofanyjurisdictionofanycommittee.
TheHousealsorejectedbyvoicevoteanamendmentproposedbyWilliamA.Steiger(RWis.)torequirethattheRecord
beaverbatimaccountofproceedingsontheflooroftheHouse.Theamendmentwouldhaverestrictedextensionsand
revisionsofremarksdeliveredonthefloortocorrectionsofgrammaticalandtypographicalerrorswithnochangesin
meaningorcontentofremarks.TheproposedamendmentallowedinsertionsintheRecordofremarksnotactually
deliveredonthefloorbutprovidedthattheybeprintedinadifferenttypefacefromthatusedfortheverbatimremarks.
AnamendmentofferedbyLloydMeeds(DWash.)andsupportedbythebipartisanreformgrouptoallow10minutesof
debateonamotiontorecommitabilltocommitteewithinstructionswasacceptedbyastandingvoteof4316.

Sept.15
TheHouseresumeddebateonHR17654afterasixweeklag.ItremovedamajorobstacletoSenateapprovalby
agreeingtoacompromiseversionofthecontroversialprovisionrequiringatwothirdsvotetoacceptanynongermane
amendmentaddedbytheSenatetoaHousepassedbill.ThecompromisewasofferedbyJamesG.O'Hara(DMich.)
andacceptedbyvoicevote.
TheHousehadastrictgermanenessrulebarringadoptionofanyamendmenttoabillunlessitwasrelevanttothebill's
subjectmatter.TheSenatedidnothavesucharuleandfrequentlyaddednongermaneamendmentstomeasureswhich
theHousehadpassed.
TheO'HaraversionprovidedthattheHouse,uponrequestofanyMember,wouldvoteseparatelyonanynongermane
amendmentwithonlyamajorityvoteneededforapproval.
ThecompromiseamendmentmadeitpossiblefortheHousetovoteuponthenongermaneamendmentapartfromthe
billitselfandeffectivelysubstitutedmajorityapprovalfortwothirdsapproval.
TheHousealsoacceptedbyvoicevotetwoamendmentsconcerningconferencereports.Thefirst,proposedbySisk,
providedthatconfereescouldnotinsertintotheirversonofabillanylanguageonatopicwhichneitherchamberhad
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senttoconferenceormodifyanybillsenttoconferencebeyondthescopeoftheprovisionscontainedintheHouseand
Senateversions.
TheHousethenacceptedanamendmentproposedbyJohnBrademas(DInd.)whichprovidedthattheHousewouldnot
consideraconferencereportuntilcopieswereavailableonthefloorandunlessthereportandaccompanyingstatement
hadbeenprintedintheCongressionalRecordatleastthreecalendardays,excludingSaturdays,Sundaysandlegal
holidays,priortofloorconsideration.TherulewouldnotapplyduringthelastsixdaysofaCongressionalsession.This
amendmenthadbeenendorsedbythebipartisanreformgroup.
AnotheramendmentacceptedbyvoicevoteprovidedthattheResidentCommissionerfromPuertoRicowouldbe
appointedbytheSpeakertostandingcommitteesaswereallelectedMembersandthathewouldbeabletovotein
committeemeetings.Underexistingrules,theResidentCommissionerwasanonvotingmemberoftheAgriculture,
ArmedServicesandInteriorCommittees.
AnamendmentbyJonathanB.Bingham(DN.Y.)tolimitthetenureofcommitteechairmentofourterms,unlessthe
Houseagreedbyatwothirdsvotetomakeanexceptiontothatrule,wasrejectedbyvoicevote.

Sept.16
TheHouseagreedbyvoicevotestoamendmentsprovidingforanannual30dayAugustrecessforCongressand
continuingtheuseofhighschoolboysaspagesratherthancollegeageboysastheCommitteebillhadprovided.
TheHousealsoamendedHR17654todeleteprovisionsraisingthesalaryofaRepresentative'stopaidetothatofa
Senator'sadministrativeassistant.AnotheramendmentwasadoptedconvertingtheHousesalarystructurefromabase
toagrosspaystandard.Thislatteramendment,proposedbyJoelT.Broyhill(RVa.)andamendedbyGibbons,wasfirst
rejectedonastandingvote,2026,andthenacceptedbyatellervoteof8473.Thebasepaywasestablishedbya
1945payact.Sincethen,17staffpayincreaseshadbeenenacted,whichwerereflectedinthegrosspaystandard.

Sept.17
OnthelastdayofdebateonHR17654,theHousereverseditsearlieractionbarringproxyvotingincommittee.
TheHouseJuly14,sittingastheCommitteeoftheWholewhereallamendmentsarefirstconsidered,adoptedan
amendmenttoprohibittheuseofproxyvotesincommittee.Theamendment,offeredbySchwengel,hadbeenaccepted
byastandingvoteof7154.
Justbeforethefinalvoteonthebill,B.F.Sisk,floormanagerofthebill,askedforaseparatevoteontheSchwengel
amendment,whichthenwasrejectedbyarollcallvoteof156187.(Vote169,p.62H)
Earlier,theHousebyvoicevoteagreedtoanamendmentdeletingthesectioninthebillcreatingajointcommitteetoset
upacoordinatedautomaticdataprocessingandinformationretrievalsystemfortheCongress.
TheamendmenttodeletethesectionwasproposedbyJoeD.WaggonnerJr.(DLa.),chairmanoftheHouse
AdministrationSubcommitteeonElectricalandMechanicalOfficeEquipment.TheSubcommitteehadbeenworking
independentlyformorethanayeartodevelopaninformationretrievalsystemfortheHouse.
Creationofajointcommittee,Waggonnersaid,wouldmeanthathisSubcommittee'sworkwouldbewasted.
Siskopposeddeletionofthesectionwhichwas,hesaid,themostimportantsingleprovisioninthebill.
BeforepassingHR17654,theHousebyvoicevotealsoadoptedamendmentsauthorizingconstructionoftheJohnW.
McCormackResidentialPageSchoolandcreatingaJointCommitteeonCongressionalOperationstocarryouta
continuingstudyoftheCongress,includingconsiderationofCongressionaluseofautomaticdataprocessingsystems.
Thebillthenpassedbya32619rollcallvote.(Vote171,p.32S)
PROVISIONS.AspassedbytheHouse,HR17654:

TitleITheCommitteeSystem
TheprovisionsofTitleIasapprovedbytheHouseconcerningHousecommitteeandfloorprocedurewerethesameas
thefinalprovisionsofTitleI.(p.448)

TitleIIFiscalControls
TheprovisionsofTitleIIasapprovedbytheHousewerethesameasthefinalprovisionsofTitleII,exceptthatthe
HouseapprovedaprovisionrequiringtheAppropriationsCommitteesofbothchamberstoholdhearingsontheBudget
within30daysofitstransmissiontoCongress,(p.450)

TitleIIISourcesofInformation
TheprovisionsofTitleinasapprovedbytheHousewerethesameasthefinalprovisionsofTitleIII,exceptthatthe
HouseapprovedaprovisioncreatingaJointCommitteeontheLibraryandCongressionalResearch.

TitleIVCongressasanInstitution
TheprovisionsofTitleIVasapprovedbytheHousewerethesameasthefinalprovisionsofTitleIVexceptthatthe
HouseapprovedaprovisionrequiringaCongressionalrecessof30daysinAugustofeveryyear,andtheHousedidnot
actonaprovisionconcerningthesalariespaidtoSenatecommitteestaffpersonnel,(p.451)

TitleVOfficeoftheLegislativeCounsel
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TheprovisionsofTitleVasapprovedbytheHousewerethesameasthefinalprovisionsofTitleV.(p.451)

TitleVIEffectiveDates
TheprovisionsofTitleVIasapprovedbytheHousewerethesameasthefinalprovisionsofTitleVI.(p.451)

AmendmentsAccepted
July14ThomasM.Rees(DCalif.)Providethatthreecommitteemembersmayfileawrittenrequestwiththechairman
forameeting,specifyingbusinesstobeconsideredifthechairmandidnotsetameetingwithinthreedays,itcouldbe
scheduledbymajorityvoteofthecommittee.Voicevote.
JonathanB.Bingham(DN.Y.)AmendmenttoHathawayamendment(below)Omitrequirementsofquorumandroll

callvotefromprovisionrequiringdaybydayvotestodeterminewhethereachday'scommitteemeetingisopenor
closed.Standingvote,8572.(LaternullifiedbydefeatofHathawayamendmentbelow)

DanteB.Fascell(DFla.)Requirethatallrollcallvotestakenincommitteebemadepublic,includingeachMember's

position.Voice.

H.AllenSmith(RCalif.)AmendmenttoFascellamendment(above)Provideforinclusionincommitteereportofvote

bywhichabillwasreportedfromcommittee.Voice.

FredSchwengel(RIowa)Prohibitproxyvotingincommittee.Standing,7154.(Laterdefeatedbyrollcallvotebelow)

July15WilliamA.Steiger(RWis.)ExcludeSaturdays,Sundaysandlegalholidaysincomputingthreecalendardays
forthefilingofsupplemental,minorityoradditionalviewsforinclusionincommitteereports.Voice.
July16FrankThompsonJr.(DN.J.)Requirethatnotlessthanonethirdofcommitteefundsbeusedforinvestigatory
staffforminoritymembers.Tellervote,10563.
July27TomRailsback(RIll.)AmendmentinthenatureofasubstituteforErlenbornamendment(below)Providefor
atleast10minutes'debateonanamendmentofferedonthefloor,solongastheamendmentwasprintedinthe
CongressionalRecordatleastonedaybeforefloorconsideration.Voice.
JohnN.Erlenborn(RIll.)(Asamended)SameasRailsbackamendment.Voice.
JamesA.Burke(DMass.)AmendmenttoO'Neillamendment(below)ProvidethatnamesofMembersnotvoting,on

recordedtellervotesberecorded.Standing,5222.

JamesG.O'Hara(DMich.)AmendmenttoO'Neillamendment(below)Providethatrecordedtellervotesberecorded

byclerksorelectronicdevices.Voice.

ThomasP.O'NeillJr.(DMass.)(Asamended)Providethattellervotesshallberecordedwhenrequestedbyonefifth

ofaquorumandallowatleast12minutesforthevote.Voice.

RobertMcClory(RIll.)Allowadoptionofanelectronicsystemforrecordingrollcallandquorumcallvotes.Voice.

July29RichardC.White(DTexas)Providethatthequorumcallcanbedispensedwithonceaquorumhasbeen
obtainedandthatMembersmightthen,foraperiodof30minutesafterthecallhasbegun,answerthecallbysigning
tallysheets.Standing,6820.(PerfectingSmithamendmentbelow)
LloydMeeds(DWash.)Providefor10minutes'debateonmotionstosendabillbacktocommitteewithinstructions,the

timebeingequallydividedbetweenthesponsorofthemotionandtheoppositiontothemotion.Standing,4316.

FletcherThompson(RGa.)RequirethatfivecopiesofanamendmentofferedintheCommitteeoftheWholebemade

availabletoeachoftheminorityandthemajoritycommitteetablesandonecopyineachcloakroom.Voice.

Sept.15B.F.Sisk(DCalif.)Providethattheconferenceversionofabillmaynotcontainanylanguageonatopicnot
senttoconferenceoranymodificationofanytopicbeyondthescopeofthedifferingprovisionssenttoconference.
Voice.
JohnBrademas(DInd.)Requirethattheconferencereportandstatementonaconferenceversionofabillbeprintedin

theCongressionalRecordatleastthreecalendardays,excludingSaturdays,Sundaysandlegalholidays,beforethe
Houseconsideredthereport,andthatcopiesofthereportbeavailableonthefloorbeforeconsideration.(Thisrule
wouldnotapplyduringthelastsixdaysofaCongressionalsession.)Voice.

O'HaraDeletetherequirementofatwothirdsHousevotetoadoptaconferencereportorabilltowhichtheSenate
hadaddedanongermaneamendment,andprovidethat,onrequestofoneMember,theHousevoteseparatelyonthe
nongermaneamendmentwithonlyamajorityvoteneededforapproval.Voice.
SiskPerfectingamendmenttoupdatethelanguageofrulesconcerningradioandtelevision.Voice.
JorgeLuisCordova(NewProg.P.R.)ProvidethattheResidentCommissionerfromPuertoRicobeelectedtoserveon
standingcommitteesoftheHouseinthesamemannerasRepresentativesandthathebeallowedtovoteincommittee.
Voice.
CharlesE.Bennett(DFla.)ProvidethatthedoorsoftheHousenotbeclosedduringarollcall,unlesstheSpeakerso

orders.Voice.

GeorgeH.Mahon(DTexas)ProvidethatthePresident,nottheSecretaryoftheTreasuryortheDirectoroftheOfficeof

ManagementandBudget,updatetheBudgetatmidyear.Voice.
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Sept.16JohnD.Dingell(DMich.)Requireanauditofthebooksofanyprivateorganizationdoingbusinessonthe
Capitolgrounds.Voice.
JamesH.Scheuer(DN.Y.)Provideforanannual30dayCongressionalrecessinAugust,unlessCongressadjourns

earlierorastateofwarexists.Voice.

AndrewJacobsJr.(DInd.)DeleteprovisionsraisingsalaryofaRepresentative'stopaidetothatofaSenator'stopaide.

Voice.

SamM.Gibbons(DFla.)AmendmenttoBroyhillamendment(below)Limitto$27,343.27thetopsalaryfora

Representative'semployee.Voice.

JoelT.Broyhill(RVa.)(Asamended)ConvertHousepayrollsystemfromabasicsalary(using1945figures)toa

gross(actual)paystandardandlimitthetotalsalaryofanemployeeonmorethanonepayrolltotheamountwhichhe
wouldbeentitledtoonasinglepayroll.Firstrejectedbyastandingvote,2026acceptedbytellervote,8473.
DingellLowertheageofpageboysfromcollegeagetoage1618,asinexistinglaw.Standing,5333.
Sept.17EdithGreen(DOre.)AmendmentinthenatureofasubstituteforBennettamendment(below)Authorize
constructionofacombineddormitoryandschoolfacilityforpages,tobecalledtheJohnW.McCormackResidentialPage
School.Voice.
Bennett(Asamended)AuthorizeacquisitionoflandforandconstructionoftheJohnW.McCormackResidentialPage
School.Voice.
KenHechler(DW.Va.)DirectcommissiontostudymodernizingHousegalleriestoconsiderchangestofacilitate

readingoflegislativematerialsandnotetakingbyvisitorsinthegalleries.Standing,3223.

JoeD.WaggonnerJr.(DLa.)DeletesectioncreatingJointCommitteeonDataProcessing.Voice.
DurwardG.Hall(RMo.)CreateaJointCommitteeonCongressionalOperations.Voice.

ReesExpandanddefinetheOfficeofLegalCounselfortheHouseofRepresentatives.Voice.
Smith(RCalif.)PerfectingamendmenttoWhiteamendment(above)Providethatmotiontodispensewithcallofroll
afterquorumhasbeenobtainedisaprivilegedmotionandshallbedecidedwithoutdebate.Voice.

AmendmentsRejected
July14DanteB.Fascell(DFla.)Provideforelectionofatemporarycommitteechairmanbymajorityvoteof
committeeifmajoritydeterminesthatchairmanisunabletocarryouthisresponsibilities.Voicevote.
JamesG.O'Hara(DMich.)Authorizeatemporarychairmantosignvouchersandperformadministrativedutiesin

absenceofpermanentchairmanifapprovedbymajorityofcommittee.Voice.

GarryE.Brown(RMich.)AmendmentinthenatureofasubstituteforHathawayamendment(below)Providethata

singlevotewoulddeterminewhetheraseriesofcommitteemeetingsonthesamesubjectwouldbeopenorclosedto
thepublic.Voice.
WilliamD.Hathaway(DMaine)Requireadailyopensessionrollcallvotebyaquorumofcommitteemembersto

determinewhetherthecommitteemeetingforthatdaywouldbeopenorclosed.Tellervote,102132.

July16JohnD.Dingell(DMich.)AmendmenttoThompson(N.J.)amendment(above)Providethatnotlessthan
onethirdofcommitteefundsbeusedformajoritystaff.Voice.
July20JamesHarvey(RMich.)AmendmenttoDennisamendment(below)Allowcommitteesdiscretiontodecide
whethertopermitbroadcastingofhearingssolongaswitnesseswereallowedtorefusetotestifyduringbroadcasting
andtherewasnobroadcastingundercommercialsponsorshipexceptforuseinnewsprograms.Voice.
DavidW.Dennis(RInd.)Deleteauthorizationforbroadcastingofcommitteemeetings.Teller,9396.

July27PaulG.Rogers(DFla.)Requirethatallvotesonpassageofappropriationsbillsberollcallvotes.Voice.
JamesC.Cleveland(RN.H.)AmendmenttoO'Neillamendment(above)SpecifythatnoMembercoulddemanda

recordedtellervoteonanamendmentwhichhadnotbeenprintedintheCongressionalRecordpriortoitsconsideration.
Voice.
LeslieC.Arends(RIll.)AmendmenttoO'Neillamendment(above)ProvideforreconsiderationbytheHouseofan

amendmentdefeatedbytellervoteintheCommitteeoftheWholeifamotionforreconsiderationwasapprovedbyone
thirdofaquorum.Voice.
WayneL.Hays(DOhio)AmendmenttoSmith(Calif.)amendment(below)Providea12minuteperiodfortakinga

recordedtellervoteinordertoallowMemberstimetogettothefloortovote.Voice.

H.AllenSmith(RCalif.)AmendmentinthenatureofasubstituteforO'Neillamendment(above)Provideforelectronic

recordingoftellervotes.Voice.

July28FredSchwengel(RIowa)AmendmentinthenatureofasubstitutefortheReussamendment(below)
Providethatcommitteemembersshouldelectcommitteechairmanfromamongthethreemostseniormajoritymembers
ofthecommittee.Teller,28160.
HenryS.Reuss(DWis.)Providethatseniorityneednotbetheonlyconsiderationinselectionofcommitteechairmen.

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Teller,73160.
July29NealSmith(DIowa)AmendmenttoWhiteamendment(above)Providethatcalloftherollforaquorum
automaticallybedispensedwithafteraquorumisestablished.Voice.
BobEckhardt(DTexas)AmendmenttoSteiger(Wis.)amendment(below)Deleterequirementthatremarksnot

actuallydeliveredonthefloorbeprintedinadifferenttypefacefromremarksactuallyspoken.Voice.

WilliamA.Steiger(RWis.)ProvidethattheCongressionalRecordbeaverbatimaccountofHouseproceedingsthat

changesinremarksberestrictedtocorrectionsofgrammarandtypographicalerrorsthatnochangesinmeaningor
contentbeallowedthatinsertionofremarksnotactuallydeliveredbeallowediftheywereprintedintypefacedifferent
fromthatusedforverbatimremarks.Voice.
ArendsRequiresemiannualreportsintheCongressionalRecordlistingthestaffemployeesofeachMemberandthe
totalgrosssalarypaidtoeach.Standing,2849.
Sept.15DurwardG.Hall(RMo.)DeletetheprovisioneliminatingthereadingoftheHouseJournalunlesstheSpeaker
oramajorityoftheMemberspresentsodesired.Standing,1225.
H.R.Gross(RIowa)ProvidethatCongressionalmailbedeliveredatrateswhichtaxpayerscouldaffordtopay.Voice.
JonathanB.Bingham(DN.Y.)Limitthetenureofcommitteechairmentofourterms(eightyears)unlesstheHouse,bya

twothirdsvote,madeanexceptiontotheruleinanindividualcase.Voice.

KenHechler(DW.Va.)AllowvisitorsintheHousegalleriestoconsultlegislativematerialsandtakenotes.Voice.
J.J.Pickle(DTexas)ChangethefiscalyearfromJuly1June30toOct.1Sept.30.Voice.

Sept.16AndrewJacobsJr.(DInd.)Providethatparliamentaryprecedentswhichhavenotbeenprintedanddistributed
totheMemberscannotbeusedasthebasisofanyparliamentaryruling.Voice.
JefferyCohelan(DCalif.)Requirethateachchamberestablishalegislativebudgettoguideitsactiononauthorization

andappropriationsbills.Voice.

Sept.17JacobsStatethatnooneshouldbedeniedthepositionofCongressionalpagebecauseofsex,race,color
orreligion.Standing,1626.
DonaldM.Fraser(DMinn.)Deletemandatorydirection(tocommissiontostudymodernizationofHousegalleries)that

publicHousegalleriesbeenclosedinglass.Voice.

WilliamS.Moorhead(DPa.)ClarifylanguagecreatingJointCommitteeonDataProcessingtomakeclearthatprovision

doesnotimpairtheauthorityoftheHouseAdministrationCommitteeortheSenateRulesCommitteetoacquireanduse
automaticdataprocessingequipmentafterconsultationwiththeJointCommittee.Standing,2050.
Schwengel(OncallforseparatevoteinHouseonSchwengelamendmentpreviouslyacceptedinCommitteeofthe
Wholebystandingvote,7154,above)Prohibitproxyvotingincommittee.Rollcallvote,156187.

SenateCommitteeAction
TheSenateGovernmentOperationsCommitteeMay23,1969,reportedaCongressionalreorganizationbill(S844S
91202).(1969Almanacp.483)
S844incorporatedtheprovisionsoftheCongressionalreformbill(S355)whichtheSenatehadapprovedin1967
exceptforprovisionsofS355dealingwithlobbying.(PassageofS355,1967Almanacp.507)
AlmostalloftheprovisionsofHR17654whichaffectedtheoperationsortherulesoftheSenateweresimilarto
provisionsofS844.HR17654didnotgotoaSenatecommitteeafterHousepassage,butwasplacedontheSenate
calendarSept.23.
AftertheSenatepassedHR17654,itagreedunanimouslytopostponeindefinitelyconsiderationofS844.

SenateFloorAction
TheSenateOct.6bya595rollcallvotepassedHR17654,theLegislativeReorganizationActof1970.(Vote333,p.
58S)
TheSenateversionofthebillwasessentiallythesameasthatapprovedbytheHouseSept.17exceptforprovisions
whichpertainedonlytotheSenate.
AsintheHouse,allattemptstorevisethesenioritysystemweresoundlyrebuffed,buttheSenatedidagreeto
amendmentswhichlimitedthenumberofcommitteesonwhichSenatorsmightserveinthefutureandthenumberof
chairmanshipswhichtheymighthold.
TheSenatealsoamendedHR17654torenametheCommitteeonBankingandCurrency,theCommitteeonBanking,
HousingandUrbanAffairs,andtocreateastandingCommitteeonVeterans'Affairs.

DebateOct.5
TheSenateapprovedaseriesofamendmentstoincludeinHR17654theprovisionsofS844.
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LeeMetcalf(DMont.),whohadservedasamemberoftheJointCommitteeontheOrganizationofCongress,wasfloor

managerofHR17654.HesaidtherewereveryfewdifferencesbetweentheprovisionsofHR17654,S844andS355.
Metcalfpointedoutthatsomeprovisions,pertainingonlytotheSenate,werenotconsideredbytheHouseandhadtobe
addedtoHR17654theSenatewouldnotactonanyprovisionsofthebillwhichdealtsolelywiththeproceduresofthe
House.Anymajoradditiontoorchangeinthebill,Metcalfwarned,mightmeanthedeathofCongressionalreforminthe
91stCongress.
TheSenateOct.5and6byvoicevoteaccepted13amendmentsofferedbyMetcalf,includingonewhichmadethe
AugustrecessforCongressmandatoryonlyinnonelectionyears.MetcalfsaidtheHousedidnotobjecttothatchange.
JacobK.Javits(RN.Y.)proposedandthenwithdrewanamendmenttoestablisha30dayappropriationssessionfor

eachchambereveryyearandtochangethefiscalyeartoconformwiththecalendaryear.Javitssaidhewouldintroduce
theseproposalsasaseparatebill.

Oct.6
TheSenatedefeatedanattempttoeliminatethesenioritysystemofselectingcommitteechairmen,andthenpassedHR
17654bya595rollcallvote.
TheSenaterejectedbyarollcallvoteof2246anamendmentbyRobertW.Packwood(ROre.)toreplacetheseniority
system(underwhichtheentireSenateapprovedtheselectionofcommitteechairmen)withanewsystemunderwhich
themajoritymembersofeachcommitteewouldselectthecommitteechairman(andtheminoritymemberswouldselect
therankingminoritymember).(Vote328,p.57S)
BeforevotingtorejectthePackwoodamendment,theSenatebya2344rollcallvoterefusedtoallowthemajorityparty
caucustoselectthecommitteechairmen.ThisalternateproposalwasmadebyCharlesMcC.MathiasJr.(RMd.)asan
amendmenttothePackwoodamendment.(Vote326,p.57S)
TheSenateagreedbyvoicevotetocreateaSenateVeterans'AffairsCommitteeafterdefeating,bya2937rollcall
vote,amotionbyRussellB.Long(DLa.)totabletheamendment.TheSenatelateragreed,ona3725rollcall,toa
motionbyMetcalftotableanothermotionbyAlanCranston(DCalif.)toreconsidertheamendment.(Votes330,332,p.
58S)
TheSenateFinanceCommittee,ofwhichLongwaschairman,theInteriorandInsularAffairsCommittee,andtheSenate
LaborandPublicWelfareVeterans'AffairsSubcommittee,ofwhichCranstonwaschairman,hadjurisdictionoverSenate
measuresconcerningveterans.TheHouseestablishedaVeterans'AffairsCommitteein1947.
TheSenatealsoamendedHR17654torequireSenatecommitteestoestablishandpublishcertainrulesofprocedure,
toretaintheexistingJointCommitteeontheLibraryinsteadofsubstitutinganewJointCommitteeontheLibraryand
CongressionalResearch,torenametheSenateCommitteeonBankingandCurrencytheCommitteeonBanking,
HousingandUrbanAffairs,andtoprovidethatSenatepagesbebetween14and18yearsold.
TheSenatebyvoicevoteapprovedanamendmentbyMetcalftoincludeinHR17654provisionsofS844andS355
whichlimitedtheworkloadthatoneSenatormightassume.Thenewprovisionslimitedfutureworkloadstomembership
ontwomajorcommitteesandoneminor,selectorjointcommitteetomembershipononlyoneofthefollowing:
Appropriations,ArmedServices,FinanceorForeignRelationsCommitteesandtothechairmanshipofonefull
committeeandonesubcommittee.NoSenatorwouldbedeprivedofanychairmanshipormembershipbythis
amendmentwhichwouldapplyonlytofutureassignments.
PROVISIONS.AspassedbytheSenate,HR17654:

TitleITheCommitteeSystem
TheprovisionsofTitleIasapprovedbytheSenateconcerningSenatecommitteeandfloorprocedurewerethesameas
thefinalprovisionsofTitleI.(p.449)

TitleIIFiscalControls
TheprovisionsofTitleIIasapprovedbytheSenatewerethesameasthefinalprovisionsofTitleII.(TheSenate
approvedanamendmentwhichdeletedfromtheHouseversionofthebilltherequirementthattheSenateaswellasthe
HouseAppropriationsCommitteeholdhearingsontheBudgetwithin30daysofitstransmissiontoCongress.)(p.450)

TitleIIISourcesofInformation
TheprovisionsofTitleIIIasapprovedbytheSenatewerethesameasthefinalprovisionsofTitleIII.(TheSenate
approvedanamendmentwhichdeletedfromtheHouseversionofthebillthesectionrecreatingtheJointCommitteeon
theLibraryastheJointCommitteeontheLibraryandCongressionalResearch.)(p.450)

TitleIVCongressasanInstitution
TheprovisionsofTitleIVasapprovedbytheSenatewerethesameasthefinalprovisionsofTitleIV.(TheSenate
amendedtheHouseversionofthebilltomaketheannual30dayrecessforCongressinAugustmandatoryonlyin
nonelectionyearsandtoincreasethesalariesofSenateCommitteestaffmemberstoalevelcomparablewiththatof
HouseCommitteestaff.)(p.451)

TitleVOfficeoftheLegislativeCounsel
TheprovisionsofTitleVasapprovedbytheSenatewerethesameasthefinalprovisionsofTitleV.(p.451)

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TitleVIEffectiveDates
TheprovisionsofTitleVIasapprovedbytheSenatewerethesameasthefinalprovisionsofTitleVI.(p.451)

AmendmentsAccepted
Oct.5LeeMetcalf(DMont.)ChangefromJan.2ofeverysecondyeartoMarch31ofeverysecondyearthedateby
whicheachstandingcommitteeshouldsubmitareportofitsreviewactivities.Voicevote.
MetcalfRequireFederalagenciestoreporttoCongressontheiractionsinresponsetorecommendationsbythe
GeneralAccountingOffice.Voice.
MetcalfLeavetocommitteesthedecisionontheamountoftraveltimeincludedintheperdiemcompensationpaidto
consultants.Voice.
MetcalfRequireAugustrecessonlyinnonelectionyears.Voice.
MetcalfDeleteSenatePostmasterfromlistofofficersoftheCongress.Voice.
MetcalfEliminatethetwominorityappointedemployeesontheCapitolGuideBoard.Voice.
Oct.6JacobK.Javits(RN.Y.)RequirethatSenatecommitteesestablishandpublishrulesforcommittee
proceedings.Standingvote.(Breakdownnottabulated).
RobertC.Byrd(DW.Va.)forB.EverettJordan(DN.C.)DeleteprovisionscreatinganewJointCommitteeonthe

LibraryandCongressionalResearchinplaceofthepresentJointCommitteeontheLibrary.Voice.

JohnL.McClellan(DArk.)IncludeSenateAppropriationsCommitteeinvariouscommitteerulesrevisedinTitleIdelete

mandatoryrequirementthattheSenateAppropriationsCommitteeholdhearingsontheBudgeteachyearrequirea
quorumoftheSenateAppropriationsCommitteeforavotetoreportanappropriationsbill.Voice.

MarlowW.Cook(RKy.)ProvidethatSenatepagesbebetween14and18yearsofage,insteadof16to18asinthe

House.Rollcallvote,4819.(Vote325,p.57S)

MetcalfEnsurethatpagesremainonpayrollthroughAugustrecess.Voice.
MetcalfRenametheSenateCommitteeonBankingandCurrencytheSenateCommitteeonBanking,Housingand
UrbanAffairsandaddtoitsjurisdictionthegeneralareaofurbanaffairs.Voice.
MetcalfLimitthecommitteemembershipsandchairmanshipswhichSenatorsmightassumeinthefuture.Voice.
MetcalfAuthorizesalariesofSenatecommitteestaffpersonnelcomparablewithsalariesofHousecommitteestaff
personnel.Voice.
MetcalfChangeeffectivedateofsalaryincreasesforSenatecommitteestaffpersonnel.Voice.
MetcalfCreateastandingCommitteeonVeterans'Affairs.Voice.(MotionbyRussellB.Long(DLa.)defeatedbya29
37rollcallvoteAlanCranston(DCalif.)motiontoreconsiderMetcalfamendmenttabledbyadoptionofMetcalfmotion
on3725rollcallvote.)

AmendmentsRejected
Oct.6CharlesMcC.MathiasJr.(RMd.)AmendmenttoPackwood(ROre.)amendment(below)Provideforelection
ofSenatecommitteechairmenbymajorityvoteofthemembersofthemajorityparty.Rollcallvote,2344.
HowardH.BakerJr.(RTenn.)AmendmenttoPackwoodamendment(below)Providethattheamendmentnotapply

tocurrentSenatecommitteechairmen.Rollcall,2148.(Vote326,p.57S)

RobertW.Packwood(ROre.)EliminatesenioritysystemforelectingSenatecommitteechairmenbyprovidingthatthe

chairmanofeachcommitteebeelectedbythemajoritypartymembersofthatcommittee.Rollcall,2246.

AllenJ.Ellender(DLa.)DeleteprovisionsincreasingsalariesofSenatecommitteestaffpersonnel.Rollcall,3234.

(Vote329,p.58S)

RussellB.Long(DLa.)AllowSenatorswhoarepartiestoalivepair(acontractbetweentwoSenatorswhotake

opposingstandsonanissuethatifoneistobeabsentwhenavoteonthatissueoccurstheotherwillwithholdhisvote
onthatissue)toberecordeduponrequestoftheSenatorwhoispresent.Rollcall,1154.(Vote331,p.58S)

FinalAction
FinalactiononthebillcameOct.8whentheHousebyvoicevoteapprovedtheversionofthebillwhichtheSenatehad
approvedOct.6.

Features
ReformAmendmentsRejected
AlthoughtheLegislativeReorganizationActwasstrengthenedintheHousebytheadditionofnumerousfloor
amendments,anumberofmajorreformproposalswererejectedorfailedtobevotedonduringHousedebateonHR
17654.
Majoramendmentswhichfailedtopassincludedthoseto:
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Modifythesenioritysystembyrequiringthateachcommitteeelectitsownchairmanfromthethreemostseniormajorityparty
membersofthecommittee.
Statethatsenioritynotbethesoleconsiderationintheselectionofcommitteechairmen.
Limitthetenureofcommitteechairmentoeightyears.
Barallproxyvotinginthecommittee.
Requirecommitteestodecidebyrollcallvoteinopensessionwhethereachday'smeetingwouldbeopenorclosed.
ProhibittheRulesCommitteefromsendingabilltothefloorwithaclosedruleforbiddingorlimitingamendmentstothebill.
ProposedbyAndrewJacobsJr.(DInd.)apointoforderwassustainedagainstit.
RequiretheCongressionalRecordtobeaverbatimaccountofHouseproceedings,withchangesallowedtocorrectonly
grammaticalandtypographicalerrors,notcontentormeaning,andwithanyremarksinsertedbutnotactuallydeliveredprinted
inatypefacedistinctfromthatusedforremarksactuallyspokenonthefloor.
MakemandatorybythebeginningoftheSecondSessionofthe92ndCongresstheuseofelectronicmachinerytorecord
votes.ProposedbyRobertL.Leggett(DCalif.)laterwithdrawn.
AllowarollcallvotebytheHouseonanyamendmentdefeatedbytellervoteintheCommitteeoftheWhole.Proposedby
ThomasP.O'NeillJr.(DMass.)apointoforderwassustainedagainstit.
Providethatnoparliamentaryprecedentcouldbeusedasthebasisofaparliamentaryrulinguntiltheprecedenthadbeen
printedanddistributedtotheMembers.
Requirethateachchamberestablishbyresolutionalegislativebudgettosetitsprioritiesinconsideringauthorizationand
appropriationsbills.

MembersVoteinAnonymityonManyCrucialIssues
BellsringthroughouttheHouseofRepresentativesanditsenvironsfromthechamberwhereHenryClaypresidedas
SpeakertothehandballcourtinthebasementoftheRayburnOfficeBuildingtosummonRepresentativestovoteona
pieceoflegislationortoansweracallforaquorum.
PrivatelyownedrestaurantsandbarsonCapitolHillevenannouncethenumberofringsandoneclangsadinnerbell,
thankstoquickphonecallsfromobligingHousedoorkeepers.
OneringofthebellsoftenwillnotbudgeaHouseMember,eventhoughthevotemaybeonanimportantissuesuchas
theantiballisticmissile(ABM)systemorAmericantroopsinCambodia.
Fortwoorthreebells,though,thesameMembersmayvoteforthesameorlesserissuesonanemptystomachorwith
tennisshoeson.
Thedifferenceis,onebellmeansonlytotalnumbersnotnamesofRepresentativeswillberecorded.Fortwoorthree
bells,Members'namesbecomeamatterofrecordforconstituentstosee.
IssuesAffected.Membersvotedinanonymityduringthe1970sessionofCongressonissuesrangingfromameasure
toexemptpotatoesforprocessingfromFederalmarketingorderstoAmericantroopsinCambodia,theantiballistic
missilesystemandschooldesegregation.
AnanalysisbyCongressionalQuarterlyshowedthatlegislationuponwhichRepresentativesvotedin1970withoutthe
scrutinyofnamerecordingvotesincluded:
EightamendmentsconcerningtheuseoffundsforAmericanforcesinCambodia,LaosandThailand,(p.380)
TwoamendmentsofferedApril30byRep.RobertL.Leggett(DCalif.)tocutfundsfortheantiballisticmissilesystemwhich
weredefeatedbytellerandstanding(Membersstandandarecountedbutnamesarenotrecordedalsocalleddivisionvote)
votes.AmendmentstocutfundsfortheC5Aplane,theMIRVmissile,B1bomber,F14fighterplaneandothermilitary
projectsweredefeatedbynonrecordtellerandstandingvotes.(p.380)
AmendmentsFeb.19towaterdownorknockoutprovisionsintheLaborandHealth,EducationandWelfareDepartments
appropriationsbilllimitingtheabilityoftheFederalGovernmenttoseekfurtherschooldesegregation,(p.133)
TwentytwoamendmentstotheDistrictofColumbiaCourtReformandCriminalProceduresActof1970whichpassedMarch
19.Theamendmentsincludedvotesonsuchsubjectsaspretrialdetention,noknocksearchwarrants,wiretappingand
mandatoryjailsentences,(p.208)
AmendmentsApril23concerningthereductionoftheNationalAeronauticsandSpaceAdministrationauthorizationfor
researchanddevelopmentfortheApolloprogramandforspaceflightoperations,(p.200)
AnamendmentMay27totheDepartmentofTransportationappropriationtodeletefundsforthedevelopmentofthe
supersonictransport(SST)defeatedbyan86102tellervote.(SeeTransportationappropriationsstory.)

CommitteeoftheWhole.Senaterulespermittedrecordvotesoneveryissue.ButtheHousetookmostofitsvotes
whilesittingasaCommitteeoftheWholeHouse(allMembersoftheHousesatasacommitteeratherthanasthe
HouseofRepresentatives),whererecordvoteswereprohibitedtospeedactionbythelargebody.
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TheHouse'snonrecordvotepracticewaspatternedafteracenturiesoldEnglishsystemwherebymembersof
Parliamentcouldhidetheirindividualvotesfromtheking.In1832,theEnglishsystemwasreformedtoprovidefora
publicrecordofvotes.TheHousereformcame138yearslater.
TheContinentalCongressfrequentlyusedtheCommitteeoftheWholeandin1789thefirstCongressadoptedasystem
ofrulesfortheHousewhichprovidedforaCommitteeoftheWhole.In1840,aSpeakerruledthatrecordvotescouldnot
betakenintheCommitteeoftheWholeandtherulinghasbeenreaffirmedsince.Therulesprovidedthatonly
amendmentsapprovedintheCommitteeoftheWholecouldbevotedonbythefullHouse.Amendmentsrejectedinthe
CommitteeoftheWholeandnotreportedtotheHousebytheCommitteewerenotconsideredbythefullbodyandthus
norollcallvotecouldbetaken.
TheCommitteeoftheWholeprocedurehadtheadvantageofallowingtheHousetoconductitsbusinesswithfewer
Memberspresentandmorequicklysincetimeconsumingrollcallswereprohibited.Aquorumwasmadeinthe
CommitteeoftheWholewithonly100Memberspresentasopposedtoamajorityofthemembershiprequiredto
transactbusinessfortheHouse(218Memberswhentherewerenovacancies).
Technically,theCommitteeoftheWholeconsideredonlybillsdirectlyorindirectlyappropriatingmoney,authorizing
appropriationsorinvolvingtaxesorchargesonthepublic,butactuallyitfrequentlyhadconsideredothertypesof
legislation,ofteninformofamendments.WhenthefullHouseresolveditselfintotheCommitteeoftheWhole,it
supplantedtheSpeakerwithachairman.Measuresweredebatedoramended,withnonrecordvotesasneeded.The
votescouldbevoice(ayesandnaysaloud),division(Membersstoodandwerecounted),orteller(Membersfiledpast
thetellerswhocountedthosefavoringandopposingaquestionbutdidnotrecordnames.Itwasalmostimpossiblefor
observerstogetanaccuratelistofMembersvotingandhowtheyvotedontellervotesbecausetheMemberspassed
bythetellersfacingawayfromthepressgalleryandtowardthepublicgallerywherenotetakingwasforbidden.).
CommitteeoftheWholeactionwastentative.Officialandfinalapprovalofamendmentsandactualpassageofbills
occurredwhentheCommitteecompleteditsworkandresolveditselfintotheHouseofRepresentatives.ForfinalHouse
actiononabill,recordvotescouldberequestedbyonefifthoftheMemberspresentonamendmentsthatwereadopted
intheCommitteeoftheWhole.TellervotesinthefullHouserequiredademandbyonefifthoftheHousequorumof218
Members(44Members).DivisionvoteswereorderedonthedemandofanyMember.

RollCalls
Ittakesabout30minutestocompletearollcallvoteintheHousebutonlyabout10minutesforatellervote.Thefull
Housein1969spentmorethansevenfulldayscallingtherollofitsMembers(for177rollcallvotesand176quorum
callswhichtookanapproximate1761/2hourstorecord).AccordingtotheHouseClerk'soffice,99rollcallsand80
quorumcallshadbeentakenin1970throughJune21.At30minutesperrollcall,thistotals881/2hours,22timesthe
amountoftime(fourhours)theHousespentdebatingthe$20.2billiondefenseprocurementauthorizationbillforfiscal
1971(HR17123),whichincludeddiscussionofU.S.troopuseinCambodiaandspendingfortheABM,MIRVandother
weaponssystems.(p.380)

SeniorityReform
AHouseRepublicanstudygroupOct.13recommendedthatHouseRepublicansadoptaplanbywhichthetopranking
Republicanoneachcommitteewouldbechosenbyasecretvoteof.allGOPRepresentatives.Nominationsforthese
postswouldbemadebytheRepublicanCommitteeonCommittees.
BarberB.ConableJr.(RN.Y.),chairmanofthestudygroups,saidthatasurveyofHouseRepublicansshowedthata

majorityofthemfavoredtheplan.Avoteontheplanwassetforearlyin1971afterthe92ndCongressconvened.

IftheRepublicanswereamajorityintheHousetheywouldchoosethecommitteechairmeninthisway.Ifnot,they
wouldchoosetherankingminoritymember.
ADemocraticgroup,headedbyJuliaButlerHansen(DWash.),alsowasconsideringchangesinthesenioritysystem.

DocumentCitation
"FirstCongressionalReformBillEnactedsince1946."InCQAlmanac1970,26thed.,0544705461.Washington,DC:
CongressionalQuarterly,1971.http://library.cqpress.com/cqalmanac/cqal701293613.
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