Parliamentary procedure is an established and systematic body of principles, motions, and practices used by deliberative assemblies to govern the conduct of their business. First applied in the early English Parliament and developed over ensuing centuries, the procedure enables an organization to accomplish its purposes in a manner that is efficient, fair, and in accordance with democratic traditions. To do so the organization will usually designate a specific manual, such as \TRobert's Rules of Order\t or Sturgis's Standard Code of Parliamentary Procedure, as its authority on parliamentary procedure.

PRINCIPLES OF DELIBERATION

Parliamentary procedure is based on a number of principles: full and fair discussion and debate, orderliness and decorum, majority rule, protection of minority rights, and conservation of time.

Full and Fair Discussion

Responsible group action in a democratic society requires full discussion of important issues by all interested members. To ensure observance of this principle, parliamentary procedure distinguishes between motions that are amendable and debatable, and those that are not. For example, both a proposed main motion and a proposed amendment to it are debatable. A motion to lay on the table, however--that is, to suspend business temporarily--is not, because debate would defeat its parliamentary purpose.

To ensure fairness in debate, standard procedure requires that speakers on opposing sides of a question be recognized alternately, that discussion of personalities or motives be avoided, and that points of order, parliamentary inquiries, and requests for information be promptly resolved. Proposals aimed at limiting discussion, such as motions to close debate--most commonly, "to move the previous question"--traditionally require a two-thirds majority vote for approval.

Orderliness and Decorum

Because unrestrained discussion would lead to chaos, orderliness is of prime importance in the conduct of meetings. It is achieved by the general practice of permitting only one subject and one speaker to be in order at a time.  More specifically, the rules state that only one main motion may be considered at a time.  A main motion may be set aside temporarily, but until it is disposed of--referred to committee, postponed, tabled, or approved or disapproved by the assembly--it is a pending question, and no other principal question can be taken up.  The principle is further implemented by the requirement that speakers address themselves to the subject under discussion and not stray from it.

In the interests of order, parliamentary procedure also defines which motions allow interruption of a speaker and which do not. A member who wishes to object to consideration of a question or raise a point of order may interrupt through intervention of the chair, because to deny interruption defeats the purpose of the motion.  A member who wishes to propose a recess, however, may not interrupt.  The conventional standard of conduct is that members do not randomly interrupt speakers or engage in dialogues with them without the permission of the chair.  All members wishing to address the assembly must be recognized by the chair and assigned the floor.

Majority Rule

The traditional rule observed in parliamentary procedure is that the majority of members of an organization is empowered to make decisions binding on all. Usually, a majority means a simple majority of one-half the members plus one, or a plurality of the members voting. Some proposals, however, such as those dealing with constitutional revisions, closing of debate, or suspension of rules, require an extraordinary majority (such as a two-thirds vote).

Protection of Minority Rights

Democratic values are reflected not only in majority rule, but also in the principle of protecting minority rights. In parliamentary procedure the views of each individual member of a group are respected. This involves the procedure of hearing minority reports of members who disagree with the report of a committee on which they serve. It also empowers a minority of one-third plus one to defeat motions to limit or close debate, to suspend a rule, or to amend a constitutional provision.

Conservation of Time

For an organization to carry out its purposes, it must make the best possible use of time.  For this reason most proposals submitted to an assembly must be supported by at least two members;  that is, motions must be seconded and can be lost for lack of a second.  Without impinging on individual rights, deliberative bodies have the obligation to deal firmly with discussion that is considered irrelevant and frivolous.

MAIN MOTIONS

All deliberative proceedings are instituted by motions, which are classified as either main or secondary. (Different sources have various ways of arranging and naming these motions.) Main motions involve substantive proposals for consideration and action.

To make a motion of any kind, a member rises and addresses the chair to request recognition, and, on being recognized, states the motion. The chair determines whether the motion is in order and whether it requires a second. The chair then states the motion and either invites discussion or debate, or, if no debate is required, asks for an immediate vote by the assembly.

Main motions are those by which an organization establishes its policies and sets its course of action. These motions therefore should be carefully prepared, usually in written form. They stated affirmatively in language that is clear, precise, and unambiguous, and spell out what is to be done, by whom, and when. Only one main motion is in order at a time. It yields to all secondary motions, but to no other main motion, except by action of the assembly.

SECONDARY MOTIONS

Secondary motions facilitate the discussion and disposition of main motions. Secondary motions are divided into privileged, subsidiary, incidental, and recall motions. Privileged and subsidiary motions are numbered 1 to 12 to show their parliamentary priority (lowest number has highest priority). Incidental and recall motions have no numerical priority but take precedence over main, privileged, and subsidiary motions.

Privileged Motions

Privileged motions are used to set aside pending business in order to give immediate consideration to various matters deemed important to the whole assembly. They take precedence over pending main and subsidiary motions and are not debatable, except in one instance. Privileged motions, in their order of parliamentary priority, are:

(1) Motion to Fix Time for an Adjourned Meeting. This motion is used to propose the time and place of the next meeting when there is pending unfinished business that should be acted on by the assembly before the next scheduled session. To make the motion, the speaker says "I move that the next meeting of this body be held at (specified time and place)." The motion may not interrupt a speaker or a vote in progress; it requires a second; and it may be amended in terms of time or place but not debated. A majority vote is required for approval.

(2) Motion to Adjourn. This motion, stated as "I move this body adjourn," is used to terminate a meeting. It requires a second, may not be amended or debated, and may not interrupt a speaker or a vote in progress.

(3) Motion for Recess. Stated as "I move a (duration specified) recess," this motion is used to propose a brief suspension of ongoing business. It is not debatable, except in the matter of the time specified, and it may be amended in this regard. The motion may not interrupt a speaker and requires a second. A majority vote is required for approval.

(4) Motion to Raise a Question of Right or Privilege. Stated as "I rise on a point (or question) of privilege," this motion is used to call attention to urgent matters affecting the rights or welfare of members, such as poor ventilation in the assembly hall. The motion may interrupt a speaker, requires no second, and may not be amended or debated. It is usually ruled on by the chair and no vote is needed.

(5) Motion to Call for an Order of the Day. This motion, stated as "I call for the order of the day," is used to call attention to a departure from the established order of business and to request a return to it. The motion may interrupt a speaker, requires no second, and cannot be amended. A two-thirds vote against the call is required to defeat it.

Subsidiary Motions

Subsidiary motions apply directly to a pending main motion and to lower-ranking subsidiary motions attached to it by previous assembly action. They are used either to regulate the discussion and interim disposition of a main motion, or to modify and test acceptance of its substance. They yield to all privileged motions and include, in order of their parliamentary priority:

(6) Motion to Lay on the Table. This motion, presented as "I move the motion be tabled," is to propose immediate suspension of consideration of a pending main motion and attached subsidiary motions. It may not interrupt a speaker, requires a second, and is neither debatable nor amendable. Majority vote is required for approval. Consideration of a tabled motion is resumed when it is removed from the table by common consent or majority vote. If not removed by the end of the next regular meeting, it must be reintroduced as a new main motion.

(7) Motion to Close Debate. Stated as "I move that discussion (or debate) be closed" (not "I move the previous question"), this motion may not interrupt a speaker, requires a second, and is neither debatable nor amendable. A two-thirds majority vote is required for approval.

(8) Motion to Limit or Extend Debate. This motion, stated as "I move that debate be limited (or extended), as follows," is used to propose setting a time limit for all discussion of a pending motion, or limiting or extending the time permitted each speaker. The motion may not interrupt a speaker, requires a second, and is not debatable, although it can be amended in regard to the time limits proposed. Approval requires a two-thirds majority vote.

(9) Motion to Postpone to a Definite Time. This motion, presented as "I move to postpone action on the motion until (time or event specified)," affects a pending main motion and attached subsidiary motions. The motion may not interrupt a speaker, requires a second, may be amended, and is debatable as to the time of postponement. A majority vote is required for approval. If a motion is made for a special order requiring that the main motion be discussed at a specific time, a two-thirds majority is required.

(10) Motion to Refer to Committee. Also known as a motion to commit and stated as "I move to refer the motion to committee," this motion transfers a pending main motion from the floor to committee. The motion may not interrupt a speaker, requires a second, and may be amended. The advisability of referring the question to committee is debatable, but the question itself is not. Approval requires a majority vote.

(11) Motion to Amend. This motion is stated as "I move to amend the motion by," and is used to propose modification of the language or substance of a pending main motion or subsidiary motions attached to it.

The amendment must be germane to the substance of the main motion and may not introduce new, unrelated matters or alter the sense of the main motion so that it acquires a meaning opposite to that intended. A proposed amendment is also out of order if it is equivalent to one previously acted on by the assembly.

As an extraordinary measure a substitute motion may be used to propose complete modification of the language and substance of a pending main motion. A substitute motion is subject--unless the original mover and a second accept it--to all the requirements of an ordinary motion to amend, which may not interrupt a speaker, requires a second, and is debatable if the motion to which it applies is. It may be amended, but only one pending amendment to an amendment is in order. Majority vote is required for approval.

(12) Motion to Postpone Indefinitely. Stated as "I move to postpone the motion indefinitely," this motion is used to propose a test vote on a pending main motion. If the proposal is approved, the main motion is fully disposed of, unless revived by a motion to rescind or reconsider. The motion to postpone may not interrupt a speaker, requires a second, and may not be amended. It is debatable, and debate may be on the merits of the main motion. A majority vote is required for approval.

Incidental Motions

Incidental motions are used to resolve particular questions that arise in connection with the assembly's conduct of business. Several of them are informal requests and are acted on by the chair, in most cases without assembly vote. Incidental motions take priority over main, privileged, and subsidiary motions. However, there is no order of priority within the group. Incidental motions include:

(a) Objection to Consideration. Stated as "I object to consideration," this is used by a member to oppose bringing up a particular matter for discussion. The objection is not in order if discussion has begun. It may interrupt a speaker, requires recognition from the chair, needs no second, and is neither amendable nor debatable. A two-thirds majority vote against consideration is required to sustain it.

(b) Point of Order. This motion is raised by a member to call attention to a violation of accepted rules and procedures of the assembly. It is stated as "I rise on a point of order," and may interrupt a speaker. It does not require a second and is neither amendable nor debatable. A ruling is usually made by the chair, which can submit the question to the assembly for a vote.

(c) Request for Information. Stated as "I rise to request information," this is used by a member to obtain facts needed in order to participate responsibly in the ongoing deliberation. The request may interrupt a speaker, does not require a second, and is neither amendable nor debatable. No vote is needed.

(d) Parliamentary Inquiry. Stated as "I rise to make a parliamentary inquiry," this requests clarification of the parliamentary situation--for instance, to ask whether an impending vote is to be on a main motion or an amendment. The inquiry may interrupt a speaker, requires no second, and is neither amendable nor debatable. No vote is required.

(e) Request to Withdraw a Motion. This is made when a member desires to withdraw a motion. The request may not interrupt a speaker. If there is no objection from the seconder of the motion, it needs no second and requires no vote. However, if the chair has stated the motion, then the motion has become the property of the assembly, and the request requires a second, and a majority vote for approval. It is neither amendable nor debatable.

(f) Motion to Determine Manner of Voting. This is stated as "I move that on the motion (specified), the method of voting shall be (specified)." The motion may not interrupt a speaker, requires a second, and may be amended. It is not debatable. A majority vote is required for approval.

(g) Request for Division of a Question. Stated as "I request division of the question," this is made when a motion about to be voted on has distinct parts and a member wants to vote on the parts separately. The request may not interrupt a speaker. It does not require a second and may be amended as to the nature of the division. It is not, however, debatable. No vote is required unless there is objection to the division, in which case a majority vote is required for approval.

(h) Request for Division of the Assembly. This is a request for a second vote. Stated as "I request division of the assembly," or simply "Division," it is made in the belief that the chair was mistaken in its report on the first vote. The request may not interrupt a speaker. It does not require a second, is neither amendable nor debatable, and needs no vote.

(i) Appeal of a Ruling from the Chair. This is made by a member who believes that the chair is in error and that its ruling conflicts with accepted procedure or violates the members' rights. Made as "I appeal the ruling of the chair," the appeal may interrupt a speaker, requires a second, and cannot be amended. The appeal is debatable if the point to which it refers is debatable. It is not debatable if it raises a question pertaining to decorum or priority of motions. A majority vote adverse to the chair's ruling is required to overturn it.

(j) Motion to Suspend a Rule.  Stated as "I move to suspend the rule and take up (stated business)," this motion is used when a proposed action would violate the rule of order usually followed by the assembly in conducting its business.  The motion may not interrupt a speaker, requires a second, and is neither amendable nor debatable.  A two-thirds majority vote is required for approval.

Recall Motions

Recall motions are used to permit the assembly to correct inadvertent errors in the passage of measures, to reexamine its actions on proposals, and in extreme cases to reverse them. The motions are:

(a) Motion to Reconsider. Stated as "I move that action on the motion (specified) be reconsidered," this proposal is out of order if the action already taken is irrevocable. It must be made during the same meeting in which the action was taken or before the session adjourns. The motion may interrupt a speaker, requires a second, and cannot be amended. It can be debated if the original motion is debatable, and debate may be on the merits of the original motion. A majority vote is required for approval.

(b) Motion to Rescind.  This motion is used to cancel and strike from the record in whole or in part an action previously taken.  No time limit is given for making the motion, but it is out of order if the action taken is irrevocable.  Stated as "I move to rescind (action specified)," the motion may not interrupt a speaker, requires a second, and is debatable and amendable.  A two-thirds majority vote is required for approval;  if prior notice of intent to make the motion has been given, a simple majority is sufficient.  \Tking\t BROADRICK-\TAllen\t

Bibliography:  Auer, J.  Jeffery, Essentials of Parliamentary Procedure, 3d ed.  (1959);  Cromwell, Harvey, The Compact Guide to Parliamentary Procedure (1973);  Cushing, Luther S., Modern Rules of Order (1974);  Jones, O.  Garfield, Parliamentary Procedure at a Glance (1971);  Robert, Henry M., et al., The Scott, Foresman Robert's Rules of Order, rev.  ed.  (1984); Sturgis, Alice F., Standard Code of Parliamentary Procedure, 2d ed.  (1966).