[House Practice: A Guide to the Rules, Precedents and Procedures of the House]
[Chapter 15. Congressional Record]
[From the U.S. Government Publishing Office, www.gpo.gov]

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                    CHAPTER 15 - CONGRESSIONAL RECORD

                              HOUSE PRACTICE

  Sec. 1. In General; Control Over the Congressional Record
  Sec. 2. Matters Printed in the Congressional Record
  Sec. 3. Corrections; Deletions
  Sec. 4. Printing Errors
  Sec. 5. Extensions of Remarks; Insertions
        Research References
          5 Hinds Sec. Sec. 6958-7024
          8 Cannon Sec. Sec. 3459-3502
          Deschler Ch 5 Sec. Sec. 15-20
          Manual Sec. Sec. 685-692, 967, 968

  Sec. 1 . In General; Control Over the Congressional Record

      The present system of reporting the proceedings of the House for 
  the Congressional Record is the result of gradual evolution. The first 
  debates, beginning in 1789, were published in condensed form in the 
  Annals of Congress. The Congressional Globe began in 1833 and 
  continued until 1873, when the Record began. 5 Hinds Sec. 6959.
      The Congressional Record is governed by statutory provisions and 
  rules as to its format and content. 44 USC Sec. Sec. 901-910. Control 
  over the arrangement and style of the Record, including maps, 
  diagrams, and illustrations, is vested in the Joint Committee on 
  Printing. 44 USC Sec. Sec. 901, 904. Neither the Speaker nor the House 
  may order changes in the type size or printing style without the 
  approval of the Joint Committee on Printing. Deschler Ch 5 
  Sec. Sec. 15.1, 15.2.
      The proceedings of the House and the proceedings of the Senate are 
  published in separate portions of the Congressional Record, and each 
  House separately controls the content of its portion of the Record. 8 
  Cannon Sec. 2503. The statement of a Senator that would normally 
  appear in the Senate portion of the Record may not be inserted in that 
  portion of the Record dealing with the proceedings of the House. 87-2, 
  Jan. 16, 1962, p 291.
      Both the Joint Committee on Printing and the House have adopted 
  supplemental rules governing publication in the Congressional Record. 
  For the text of these rules, see Manual Sec. 686. Under rule X clause 
  1(i), the Committee on House Administration has jurisdiction of 
  matters relating to printing and correction of the Record.

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      A Member is not entitled to inspect the reporter's notes of 
  remarks of others not reflecting on himself nor may he demand that 
  they be read. 5 Hinds Sec. Sec. 6964, 6967; 8 Cannon Sec. 3460.

  Sec. 2 . Matters Printed in the Congressional Record


      The content of the House portion of the Congressional Record is 
  governed by statutory law, the House rules, and the customs and 
  practices of the House. In addition, the House often agrees by 
  unanimous consent to permit certain matter to be inserted in the 
  Record which would not ordinarily be included. Deschler Ch 5 Sec. 16.
      Rule XVII clause 8 and section 901 of title 44 of the United 
  States Code require the Congressional Record to be a substantially 
  verbatim account of the proceedings of the House. Manual Sec. 967. 
  Clause 8 applies to statements and rulings of the Chair as well as to 
  debate. Manual Sec. 968. Because of this requirement, the Speaker will 
  not entertain a unanimous-consent request to give a special-order 
  speech ``off the Record.'' Manual Sec. 687.
      Additional matters required by statute or House rules to be 
  printed in the Congressional Record include:

    The oath of office subscribed to by a Member. 2 USC Sec. 25.
    Referrals to committee under rule XII clause 7. Manual 
         Sec. 825.
    The filing of committee reports. Manual Sec. 831.
    Reports submitted to Congress pursuant to a statute requiring 
         publication in the Record. See, e.g., 2 USC Sec. 1383.
    Amendments to be protected for debate time under the five-
         minute rule. Manual Sec. 987.
    Conference reports and accompanying statements. Manual 
         Sec. 1082.
    Messages received from the Senate and President giving notice 
         of bills passed or approved under rule XII clause 1. Manual 
         Sec. Sec. 815, 875.
    Motions to discharge. Manual Sec. 892.
    Timely changes in votes. Deschler Ch 5 Sec. 16.14.
    The addition or deletion of the name of a cosponsor. Manual 
         Sec. 825.
    Measures introduced ``by request.'' Manual Sec. 826.

      The Congressional Record is for the proceedings of the House and 
  Senate only, and unrelated matters are rigidly excluded. 5 Hinds 
  Sec. 6962. It is not, however, the official record of business, that 
  function being fulfilled by the Journal. See Journal.
      As a general principle, the Speaker has no control over the 
  Congressional Record. 5 Hinds Sec. Sec. 6983, 7017. The House, and not 
  the Speaker, determines the extent to which a Member may be allowed to 
  extend his remarks (5 Hinds Sec. Sec. 6997-7000; 8 Cannon Sec. 3475), 
  whether or not a copy

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  righted article shall be printed therein (5 Hinds Sec. 6985), or 
  whether there has been an abuse of the leave to print (5 Hinds 
  Sec. 7012; 8 Cannon Sec. 3474).
      The House frequently agrees by unanimous consent to permit 
  insertions of matters of general interest in the Congressional Record 
  at the request of Members. Matters that have been inserted in the 
  Record under this procedure include:

    Information relative to the installation of voting equipment in 
         the Chamber. 91-2, Nov. 25, 1970, p 39085.
    Records from litigation involving the House. 90-1, Apr. 10, 
         1967, pp 8729-62.
    The transcript of proceedings of the House in a secret session. 
         96-1, July 17, 1979, p 19049.
    Summaries of the work of Congress or its committees at 
         adjournment. Deschler Ch 5 Sec. 16.
    Extraneous and tabular matter as the Majority and Minority 
         Leaders consider necessary to establish legislative history 
         concerning the codification of the standing rules. 106-1, Jan. 
         6, 1999, p ____.

                Printing Bills in the Congressional Record

      Measures considered in the House are printed in the Congressional 
  Record as introduced at the beginning of consideration. If an amended 
  version of the measure is made in order under the special order 
  providing for its consideration, that amended version is printed 
  immediately following the introduced version, unless further 
  amendments are made in order. In that case, the amended version is 
  printed after debate.
      Measures considered in the Committee of the Whole are printed in 
  the Congressional Record following general debate. The only version of 
  the measure printed is the one made in order as original text for the 
  purpose of amendment by the special order providing for its 
  consideration. The measure is printed as read by the Clerk. For 
  example, if under a special order the measure is considered as read, 
  it is printed in its entirety after general debate. If the measure is 
  read by title, each title is printed at the point the Clerk either 
  reads or designates it. No other version of the measure is printed in 
  the Record.
      Where the House considers a Senate measure following passage of a 
  similar House bill and amends it with the House-passed text, both the 
  Senate and the House version of the measure are printed in full at 
  that point in the Congressional Record, unless the Senate-passed 
  version has been previously printed Senate proceedings.

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  Sec. 3 . Corrections; Deletions

      Under rule XVII clause 8, the substantially verbatim account of 
  remarks made during debate and published in the Congressional Record 
  is subject only to technical, grammatical, and typographical 
  corrections authorized by the Member making the remarks involved. 
  Unparliamentary remarks may be deleted only by permission or order of 
  the House. Under rule XVII clause 8(c), this requirement is a standard 
  of official conduct that may be investigated by the Committee on 
  Standards of Official Conduct. Manual Sec. 967.
      The remarks of a Member, if in order, cannot be stricken from the 
  Congressional Record by the House. 5 Hinds Sec. 6974; 8 Cannon 
  Sec. 3498. However, remarks that are out of order may be excluded from 
  the Record by House order. Deschler Ch 5 Sec. 19.8. Remarks by an 
  interrupting Member who has not been recognized do not appear in the 
  Record. Manual Sec. Sec. 687, 946.
      The Committee of the Whole may not authorize deletions from the 
  Congressional Record. 5 Hinds Sec. 6986; Deschler Ch 5 Sec. 17.22.
      Substantive insertions submitted under leave to ``revise and 
  extend'' are printed in distinctive type. A speech that has been 
  substantively revised is printed as delivered and then separately 
  printed as revised in distinctive type. Manual Sec. 686.

  Sec. 4 . Printing Errors


      The House may correct errors in the printing of the Congressional 
  Record in order to ensure that the proceedings of the House are 
  accurately recorded. 5 Hinds Sec. 6972. The authority to correct such 
  errors is vested in the House, not the Speaker. 5 Hinds Sec. 7019; 
  Deschler Ch 5 Sec. 18.
      The correction of an error in the Congressional Record may present 
  a question of the privileges of the House where the integrity of House 
  proceedings is in question. Manual Sec. Sec. 690, 704; Deschler Ch 5 
  Sec. Sec. 18.1, 18.2. However, this question may not be raised until 
  the daily edition of the Record has appeared (Deschler Ch 5 Sec. 18), 
  and no corrections may be submitted after the permanent edition of the 
  particular volume is published (Deschler Ch 5 Sec. 18.12).
      Errors that may be corrected under this procedure are errors in 
  the transcript or printing of the proceedings, not errors of fact made 
  by a Member during debate. The House may not change the Congressional 
  Record merely to show what should have been said on the floor. 5 Hinds 
  Sec. 6974; 8 Cannon Sec. 3498; Deschler Ch 5 Sec. 18. A mere 
  typographical error or proper revision

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  of a Member's remarks does not give rise to a question of privilege. 
  Manual Sec. 690.

                          By Motion or Resolution

      A motion or resolution to correct the Congressional Record, if 
  constituting a question of privilege, is in order after the approval 
  of the Journal. Manual Sec. 690; Deschler Ch 5 Sec. 18.6. A motion or 
  resolution to correct the Record also is in order after a unanimous-
  consent request to that effect has been objected to. Deschler Ch 5 
  Sec. 18.9. Such motion or resolution is debatable under the hour rule 
  and is subject to a motion to refer to the Committee on Rules. 
  Deschler Ch 5 Sec. Sec. 18.7-18.10.

  Sec. 5 . Extensions of Remarks; Insertions


      In 1968 the Appendix of the Congressional Record was replaced by a 
  new heading, ``Extensions of Remarks,'' for the inclusion of material 
  in the Record that is extraneous to the proceedings on the floor. A 
  Member may be permitted to extend his remarks in this part of the 
  Record so as to insert (1) a speech that was not actually delivered on 
  the floor and (2) extraneous materials related to the subject under 
  discussion, provided the consent of the House is obtained. 5 Hinds 
  Sec. Sec. 6990-6993; Deschler Ch 5 Sec. 20. This has been a long-
  standing practice, dating from as early as 1852, when it was the 
  custom to print undelivered speeches in the Appendix to the Record. 5 
  Hinds Sec. 6993. Under the modern practice, such insertions are 
  permitted by unanimous consent and not by privileged motion. Deschler 
  Ch 5 Sec. 20.11.
      Permission to include extraneous materials may be granted only by 
  the House. To eliminate the need for daily requests, the House has 
  recently adopted the practice of granting all Members permission to 
  revise and extend their remarks in the ``Extensions of Remarks'' 
  portion of the Congressional Record and include extraneous material 
  (within two Record) at the beginning of each Congress. See, e.g., 106-
  1, Jan. 6, 1999, p ____. The Chairman of the Committee of the Whole 
  may recognize a Member to extend his own remarks, but the Committee of 
  the Whole lacks the power to permit the inclusion of extraneous 
  materials. Deschler Ch 5 Sec. 20.12.
      Permission to extend in the body of the Congressional Record must 
  be sought by the Member whose remarks are to be inserted, although 
  general permission to extend is sometimes given to all Members. 
  Deschler Ch 5 Sec. 20.
      The revised material inserted under permission to extend remarks 
  must be clearly distinguishable, by different typeface, from the 
  substantially ver

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  batim account of proceedings. The Speaker has instructed the Official 
  Reporters of Debates to adhere strictly to this requirement. Manual 
  Sec. 687.


      Permission to extend must be sought at the proper time. Requests 
  to insert made prior to the reading and approval of the Journal will 
  not be entertained. Deschler Ch 5 Sec. 20.4. The Speaker may decline 
  to entertain a request to extend remarks pending a motion to discharge 
  a committee or during the pendency of a motion to suspend the rules. 
  Deschler Ch 5 Sec. Sec. 20.7, 20.8.

                            Strict Construction

      Authorizations to extend remarks in the Congressional Record are 
  strictly construed. Deschler Ch 5 Sec. 20. A Member who has received 
  permission to extend his remarks may not without consent include in 
  such remarks extraneous matter, such as an article or speech by 
  another person. 8 Cannon Sec. 3479; Deschler Ch 5 Sec. 20.23. 
  Similarly, a Member who has obtained the consent of the House to 
  extend remarks only on a specific bill must confine his insertions to 
  the subject matter of the bill and may not include extraneous 
  materials such as letters, editorials, or articles. Deschler Ch 5 
  Sec. 20.24.
      The Chair will decline to entertain a request that a Member be 
  permitted to revise and extend his remarks on a point of order or to 
  insert, immediately following a record vote on an amendment, the 
  results of a previous record vote on the same subject. Manual 
  Sec. 628; 96-2, Jan. 30, 1980, p 1319.

                         Limitations on Insertions

      Under leave to extend, a Member may not insert matter that:

    Would be out of order if stated on the House floor. 5 Hinds 
         Sec. 7003; Deschler Ch 5 Sec. 20.
    Fails to comply with statute or the rules of the Joint 
         Committee on Printing as to format (44 USC Sec. 904), cost-
         estimate requirements for extraneous matter exceeding two 
         Congressional Record pages (Manual Sec. 692), or subject matter 
         (92-2, May 10, 1972, pp 16661, 16748-16836).
    Fails to conform to the descriptions implicit in the request to 
         which the House consented. 5 Hinds Sec. 7001; 8 Cannon 
         Sec. 3479; Deschler Ch 5 Sec. Sec. 20.25, 20.26.
    Fails to include the Member's signature. Manual Sec. 686.
    Alters the nature of colloquies as delivered on the floor or 
         changes the meaning of what another Member said. Deschler Ch 5 
         Sec. Sec. 19.3, 19.17, 20.3.
    Inserts an entire colloquy between two or more Members that was 
         not actually delivered. Manual Sec. 692.

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    Includes newspaper articles or other extraneous matter without 
         having obtained authority to do so. Manual Sec. 692; 8 Cannon 
         Sec. Sec. 3480-3483.

                          Abuse of Leave to Print

      Abuse of the leave to print gives rise to a question of privilege. 
  5 Hinds Sec. Sec. 7008, 7011; 8 Cannon Sec. Sec. 3491, 3495. A 
  resolution to investigate the propriety of remarks as constituting 
  such abuse, or for the appointment of a committee to consider the 
  propriety of remarks inserted under leave to print, is privileged but 
  is not in order until the Congressional Record appears. 5 Hinds 
  Sec. Sec. 7020, 7021; 8 Cannon Sec. Sec. 3493, 3495. An inquiry by the 
  House as to alleged abuse of leave to print does not necessarily 
  entitle the Member implicated to recognition on a question of personal 
  privilege. 5 Hinds Sec. 7012. However, when a committee is appointed 
  to investigate the propriety of a Member's remarks in the Record, the 
  Member is afforded an opportunity to be heard. 8 Cannon Sec. 3491.


      The extension of remarks in the Congressional Record by a Member 
  without the permission of the House constitutes grounds for a question 
  of the privilege of the House, and the House may expunge such remarks 
  from the Record. Deschler Ch 5 Sec. 20.2. A resolution to expunge 
  remarks alleged to be an abuse of leave to print is privileged and 
  entitles its proponent to recognition to debate it. 8 Cannon 
  Sec. Sec. 3475, 3479, 3491.
      The House may exclude in whole or in part an insertion by a Member 
  under leave to print in the Congressional Record that would not have 
  been in order if uttered on the floor. Manual Sec. 692.


      Member: Mr. Speaker, I ask unanimous consent to extend my remarks 
    on the bill just passed, H.R. __________, by inserting an article 
    pertaining thereto.
      Majority Leader: Mr. Speaker, I ask unanimous consent that all 
    Members speaking on the bill have five legislative days in which to 
    extend remarks in the Congressional Record, to be confined to the 
      Majority Leader: Mr. Speaker, I ask unanimous consent that for the 
    __________ Congress all Members be permitted to extend their remarks 
    and to include extraneous material within the permitted limit in 
    that section of the Congressional Record entitled ``Extensions of