Basics of Parliamentary Procedure - ga-pcusa.org · BASICS OF PARLIAMENTARY PROCEDURE 7 OFFICE OF...

Basics of Parliamentary Procedure

This course is part of the 223rd General Assembly (2018) Commissioner Pre-Assembly trainings offered by the Office of the General Assembly, Presbyterian Church (U.S.A.).

About this Course

Seeking Together the Mind of Christ

Understanding Motions

Assembly Business

Attachments

BASICS OF PARLIAMENTARY PROCEDURE 2 OFFICE OF THE GENERAL ASSEMBLY

About this Course

Welcome and congratulations on your election as an advisory delegate or commissioner to the 223rd General Assembly (2018)! The Presbyterian Church (U.S.A.) is praying for you as you gather to discern the will of Christ and follow him into God’s future. This course is part of the 223rd General Assembly (2018) Commissioner Pre-Assembly training materials offered by the Office of the General Assembly, Presbyterian Church (U.S.A.).

Course Objectives This course covers the basics of parliamentary procedure and is made available to commissioners to the 223rd General Assembly (2018) of the Presbyterian Church (U.S.A.).

About Your Trainer Your trainer for this course is the Reverend Tricia Dykers Koenig. Tricia has attended every General Assembly except two since serving as a commissioner to the 203rd General Assembly (1991), but this will be her first as associate director for mid council relations in the Office of the General Assembly. She is a member of the Presbytery of the Western Reserve and a registered parliamentarian.


Seeking Together the Mind of Christ

“The General Assembly constitutes the bond of union, community, and mission among all its congregations and councils, to the end that the whole church becomes a community of faith, hope, love, and witness. ...” (Book of Order, G-3.0501).

How does the General Assembly make decisions that lead and guide the witness of the whole church?

What Governs the General Assembly? The General Assembly is governed by the Book of Order and the Manual of the General Assembly, which includes the Standing Rules of the General Assembly. Find these in the Attachments section of this document or under the Resources tab in PC-Biz.

https://www.pc-biz.org/#/


Values Present at the General Assembly Read pages 3–4 of the Manual of the General Assembly for an introduction to the “Values Present at General Assembly,” which emphasize that the purpose of the General Assembly is to seek together the mind of Christ (see also Book of Order, F-3.0204). Although you as an assembly commissioner should listen to your presbytery colleagues and to all sides of an issue, you do not come with instructions from those who elected you. “Decisions shall be reached in councils by vote, following opportunity for discussion and discernment, and a majority shall govern” (Book of Order, F-3.0205).


Advisory Delegates Advisory Delegates are full members of their General Assembly committees, with voice and vote. In plenary, they have voice but not vote, and are not eligible to make motions; but they are polled before commissioners vote.


How Do We Conduct Meetings? Meetings of councils, as required by the Book of Order, are “conducted in accordance with the most recent [currently, the 11th] edition of Robert’s Rules of Order Newly Revised [RONR]. … Councils may also make use of processes of discernment in their deliberations prior to a vote as agreed upon by the body” (Book of Order, G-3.0105, emphasis added). RONR intends to protect the rights of all parties; while the majority rules, the rights of the minority to be heard are safeguarded.


General Assembly Practices Many sessions and presbytery committees are in the habit of discussing issues without a motion on the floor until consensus has been reached, and agreeing on the final wording together before making the motion and voting. The General Assembly and its committees are necessarily more formal. However, when a committee has multiple overtures on one topic, it’s not uncommon to agree upon a period of discussion without a motion on the floor in order to consider a number of ideas before formal debate and voting. RONR calls this “aids to the crystallization of opinion.”

Photo Credit: Eric O. Ledermann


Committee Practices Your committee’s leadership will propose an agenda, to be approved by the committee at its initial meeting (Standing Rule E.4.). Except for the Assembly Committee on Bills and Overtures, all committees schedule open hearings so that persons interested in business, but without voice in the committee, may be heard (Standing Rule E.5.).


Understanding Motions

Pages 8–9 of A Guide to Parliamentary Procedure in the Presbyterian Church (U.S.A.) chart the most common motions and shorthand rules for their use; you might want to print those pages for quick reference. Chart #1, the thirteen ranking motions, is also reproduced on the next page.

Most motions are approved by a majority (more than half) of those voting. When the requirement is for a 2/3 vote, it is generally a motion to restrict the rights of a member of the body (such as cutting off debate), or to change a previous action (such as suspending the Standing Rules).

Chart #1, the thirteen ranking motions, shows the hierarchy of motions that are in order when other motions are pending (on the floor). The main motion is at the bottom of the chart, and thus lowest-ranking; a main motion (which brings business before the body) is not in order while any other motion is on the floor.

Lower-ranking motions are not in order whenever a higher-ranking motion is pending—for example, if a motion to limit debate is on the floor, it is in order to move to take a recess, but not vice versa. If a motion to postpone to a definite time is on the floor, it is not in order to move to amend the main motion; but it would be in order to move to amend the motion to postpone (for example, to a different time).

When several motions are pending, the last one made must be disposed of first, until the body works its way back in reverse order to the main motion.

https://pcbiz.s3.amazonaws.com/Uploads/72c42bc8-3696-4241-b79f-1da11210b47c/parliamentary-procedure2014-elec.pdf



Subsidiary Motions—What You Need to Know

8. Lay on the Table

It’s common for people to move “to table” a motion when they really intend the effect of the motion to postpone to a particular time. The undebatable motion to lay on the table is properly used only when something of immediate urgency has arisen, and the motion does not specify a time when the matter will be taken up again. The debatable and amendable motion to postpone definitely is usually more appropriate—for example, to postpone until after something else has happened in the session, more information can be gathered, or to a specific hour.

7. Previous Question (“Call the Question”)

Many love the motion to call or move the previous question—to close debate immediately and proceed to a vote. Anyone wishing to move the previous question must first be recognized by the Moderator—no shouting—and a 2/3 vote is required to end debate. The motion to move the previous question can be applied to the immediately pending motion alone, or to any number of pending motions—for example, both a secondary and a primary amendment—or to all pending questions (sometimes “all that is before us”), such as a secondary amendment, a primary amendment, and the main motion. (But it could not be applied to a secondary amendment and the main motion, skipping the primary amendment.)

Be aware that much time can be spent on debate of amendments, and it may not be helpful to move the previous question on all pending questions when the body hasn’t yet had an opportunity to debate the main motion. Because the Book of Order (F-3.0205) stipulates decisions “following opportunity for discussion and discernment,” this motion should not be used to cut off debate prematurely.

Sometimes someone is recognized to move the previous question when it’s evident that no one wishes to continue debate. In those instances, the motion actually takes up more time because the Moderator has the discretion to move directly to a vote without it.


6. Limit or Extend Limits of Debate

The Standing Rules (F.5.a.) limit speeches in plenary to two minutes, but the body by a 2/3 vote can modify debate by setting further time limits on individual speeches, the number of speeches, the total time for further debate, or the hour by which a vote will be taken. Time limits on speeches can also be extended by suspending the Standing Rules, but with the press of business, that’s usually not the desire.

5. Postpone Definitely

It’s common for people to move to table a motion when they really intend the effect of the motion to postpone to a particular time. The undebatable motion to lay on the table is properly used only when something of immediate urgency has arisen, and the motion does not specify a time when the matter will be taken up again. The debatable and amendable motion to postpone definitely is usually more appropriate—for example, to postpone until after something else has happened in the session, more information can be gathered, or to a specific hour.

4. Refer (or Commit)

The motion to commit (refer) is used when the mover believes that the issue warrants further study or refinement that’s not possible right away. Motions to refer should be clear about what committee (already existing, or special) will consider the matter, its task or charge, and when it shall report. Unless other stipulations are made in the action approved, special committees (Standing Rule K.1.) are appointed by the General Assembly [Co-]Moderator[s]. When matters are referred to committees by the General Assembly, the action often comes by way of a main motion, sometimes with special instructions to the committee.

3. Amend

Perhaps the most common subsidiary motion is to amend. A motion to amend must be germane—it cannot introduce a new subject—and may take three forms: to insert or add; to strike out; and to do both (strike out some words and insert/add others).

A motion to amend by replacing a whole paragraph with different wording, or involving words that are not consecutive, is a substitute.


It is in order to move to amend a proposed primary amendment to a main motion, but a further level of amendment is not in order until the secondary amendment has been disposed of.

There is no such thing as a “friendly amendment,” however welcome it may be to the maker of the main motion. Once a motion has been made, seconded, and stated by the Moderator, it belongs to the body and any amendments must be moved, seconded, and voted upon.

2. Postpone Indefinitely

The motion to postpone indefinitely is of little use at General Assembly, as it is not in order after business has been referred to General Assembly committees. Its function is to kill a main motion for the duration of the assembly without voting directly on it; voting to disapprove can achieve the same final result, while allowing full consideration of the matter, including hearing those bringing the business who are entitled to speak.

1. MAIN MOTION

A main motion (which brings business before the body) is not in order while any other motion is on the floor.

Helpful Tips

• When you speak in committee or plenary, you will always be expected to identify yourself—name, role, and presbytery. After a while, it might not be necessary in committee; but if you get to the point where everyone on the plenary floor recognizes you on sight, you might want to consider giving others a chance to participate.

• The maker of a motion has the privilege of first debate, but not the last word. The Moderator will try to alternate speakers pro and con.

• It is the responsibility of the Moderator to ensure that all members are clear about what’s being voted on—generally by stating the question (repeating the motion) when it is first made and seconded, or indicating the proper words on the screen. Sometimes it’s also necessary to go into more detail to explain the effects of a proposal.

• If you are confused about parliamentary procedure, or it seems that others are, or if things are moving too quickly, do not be afraid to make a parliamentary inquiry, raise a point of order, ask for clarification, or request information. “Moderator, please explain the effect of that motion. …”


Assembly Business

The business to be considered by the General Assembly reflects hard work by other councils of the church, and by the committees elected by General Assembly to function between assemblies. Most business items are referred to General Assembly (GA) committees on the first day, and every item will eventually be addressed in some form by the whole GA. Learn about the flow of business in this lesson.

Overtures Most of the business of the General Assembly comes through overtures from presbyteries and synods or reports from the elected committees that work on our behalf between assemblies.

Photo Credit: Explore St. Louis


Commissioners’ Resolutions Every year a few items of new business are referred to committees by way of commissioners’ resolutions [CR]. A commissioner may sign a maximum of two CRs.

The signatures of two commissioners from different presbyteries are required to submit a CR. They must submit the form in person to the Tracker Desk by 1:30 Sunday afternoon (no exceptions!)—preferably together, though the trackers will wait for the second person as long as s/he meets the deadline. No one can drop it off for them.

One of the two signers will have the opportunity to address the committee to which the CR is referred, at the time of its consideration. That does entail leaving one’s own committee.

A CR is not in order if it deals with business already before the General Assembly, or if the purpose can be achieved by regular process of amendment and debate on another item, and it cannot entail amendment or interpretation of the Constitution.



Committee Actions Your committee has several options for dealing with a recommendation that comes to you:

• approve; • approve with comment and/or amendment; • disapprove with or without comment; • answer by an alternate resolution (approval of new text); • refer to (a named agency), with or without comment; • or answer by action taken on a different item in the same committee.

The last option is common when committee business includes multiple overtures on the same topic.


Wednesday Consent Agenda Business that receives 75 percent or better support in committee and does not involve amending or interpreting the Book of Order will go on the Wednesday Consent Agenda, a collection of presumably uncontroversial actions that can be approved without objection before committees begin to report to the full assembly—saving valuable time for other items. You, as a commissioner, may remove an item simply by requesting to do so if you oppose the action or otherwise wish to discuss it; but be prepared to speak to it later when it comes up in the committee report (Standing Rule F.5.b.).


Voting in Plenary In plenary you will be voting not on the business as it first came to the assembly, but on the General Assembly committees’ recommendations. Be alert to the confusion that can happen if the motion is “to disapprove”; you might have to vote “no” on the motion from the committee in order to say “yes” to the action proposed in an overture or report. Business moves rapidly, but you have the right to ask the Moderator to explain the effect of the proposal so that everyone is clear before the vote is taken.

Minority Reports What if you feel strongly that your committee got it wrong? You have the right to submit a minority report (Standing Rules E.7.h., F.3.) for the full assembly to consider if your proposal provides an alternative other than the opposite of the majority—that is, a minority report is not in order if its purpose could be accomplished by voting “no” on the committee’s recommendation. Ideas in a minority report must have been discussed in committee, so in order to have a record of that discussion you must propose them in the form of a motion, complete with motion form. If the change you desire can be accomplished simply by amending the committee’s recommendation, a minority report is not appropriate.



Inform the committee prior to adjournment if you intend to submit a minority report. At that time, invite those who might like to join you in signing it to gather after adjournment to organize. The deadline for submission is the same as that for the committee’s report.

When the committee’s report comes to the floor of the General Assembly, the committee’s recommendation will be moved first, followed by the minority report as a substitute motion. The General Assembly will be asked to consider and perfect (amend) the committee’s recommendation, then do the same to the minority. Amendments are supposed to be made to each report only by those who intend to support it; in other words, amendments intended to weaken either report or frustrate its purposes are not in order. A successful motion to consider either report perfected ends the time for amendment on that report; there will be no opportunity for substantive amendment later.

Substantive debate on the merits of the overall issue occurs when the question is put: “Shall the minority report become the main motion?” Those who favor the committee recommendation vote no. If you favor the minority, you vote yes twice (should you prevail in the first vote).


Protests and Dissents If you vote against a motion which prevails, you may file a written protest or a dissent with the Assembly Committee on Bills and Overtures (Book of Order, G-3.0105); it will be included in the Minutes of the assembly if the Assembly Committee on Bills and Overtures decides it is decorous and respectful. Ask your committee leadership or the microphone assistant for the correct form. A protest expresses disagreement, supported by reasons, alleging an irregularity or delinquency. A dissent puts you on record as disagreeing with the action.


Attachments

A Guide to Parliamentary Procedure in the PC(USA) (PDF)

Manual of the General Assembly (PDF)

Book of Order 2017–2019 (PDF)

Annotated Book of Order (online)

https://pcbiz.s3.amazonaws.com/Uploads/72c42bc8-3696-4241-b79f-1da11210b47c/parliamentary-procedure2014-elec.pdf

https://pcbiz.s3.amazonaws.com/Uploads/309d601c-ce82-4c8e-afc1-5ce07de96141/Manual%202018.pdf

https://pcbiz.s3.amazonaws.com/Uploads/8fe1254e-4de3-4288-9d5b-30141553124a/book-of-order2017-electronic.pdf

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