The Committee of the Whole House is a committee of
the House on which all Representatives serve and which meets in the
House Chamber for the consideration of measures from the Union
calendar. However, it is governed by different rules of procedure
than the House meeting as itself. The concept of the "grand
committee" has been carefully developed from the early days of the
House and in modern practice gives the House a more expeditious
means for considering the complex and often controversial
legislation referred to it.
Historically it was devised by the English House of
Commons to give them the ability to debate privately and not have
their votes committed to record. The Committee of the Whole in the
U.S. House, however, has permitted recorded votes since January
1971. The House resolves itself into a new Committee of the Whole
for the consideration of a bill. A specific Committee of the Whole
is dissolved when it "rises and reports with a recommendation," to
the House. When the Committee rises after not having resolved the
matter committed to it, that bill is carried on the calendar as
"unfinished business of the Committee of the Whole" until
consideration has been finally completed.
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2. What is a standing
committee?
Standing committees are permanent panels identified
in Chamber rules, which also list the jurisdiction of each
committee. Because they have legislative jurisdiction, standing
committees consider bills and issues and recommend measures for
consideration by the House. They also have oversight
responsibilities to monitor agencies, programs, and activities
within their jurisdictions, and in some cases in areas that cut
across committee jurisdictions. Most standing committees recommend
authorized levels of funds for government operations and for new and
existing programs within their jurisdiction, but a few have other
functions.
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3. What are the current standing
committees of the House?
Currently, there are 20 current standing committees
of the House: Agriculture; Appropriations; Armed Services; Banking
and Financial Services; Budget; Commerce; Education and the
Workforce; Government Reform; Homeland Security; House Administration; International
Relations; Judiciary; Resources; Rules; Science; Small Business;
Standards of Official Conduct; Transportation and Infrastructure;
Veterans Affairs; and Ways and Means.
View the list of current
standing committees of the House of Representatives.
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4. How are the members of the
standing committees selected?
Before Members are assigned to committees, each
committee's size and the proportion of Republicans to Democrats must
be decided by the party leaders. The total number of committee slots
allotted to each party is approximately the same as the ratio
between majority party and minority party members in the full
Chamber.
Members are then assigned to committees in a
three-step process. Each of the two principle parties in the House
is responsible for the assigning its members to committees, and at
the first stage, each party uses a committee on committees to make
the initial recommendations for assignments. At the beginning of the
new Congress, Members express preferences for assignment to the
appropriate committee on committees. Most incumbents prefer to
remain on the same committees so as not to forfeit expertise and
committee seniority. These committees on committees then match
preferences with committee slots, following certain guidelines
designed in part to distribute assignments fairly. They then prepare
and approve an assignment slate for each committee, and submit all
slates to the appropriate full party conference for approval.
Approval at this second stage often is granted easily, but the
conferences have procedures for disapproving recommended Members and
nominating others in their stead. Finally, at the third stage, each
committee submits its slate to the pertinent full Chamber for
approval, which is generally granted.
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5. What constitutes a quorum of a
standing committee of the House?
Each House committee is authorized to establish its
own quorum requirement for the transaction of business. House rules
specify that House committees shall have at least two members
present to take testimony or receive evidence and at least one-third
of the members present for taking any other action, except reporting
out a bill to the floor. However, a physical majority of the
committee members must be present to report a bill to the floor.
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6. What are select committees?
Select committees usually are established by a
separate resolution of the parent chamber, sometimes to conduct
investigations and studies, sometimes to consider measures. Often
one is established because the existing standing committee system
does not address an issue comprehensively, or because a particular
event sparks interest in an investigation. A select committee may be
permanent or temporary. Special committees, and more rarely,
undesignated committees, tend to be similar in constitution and
function.
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7. What are joint committees?
Joint committees are made up of members of both
chambers. Today, they usually are permanent panels that conduct
studies or perform housekeeping tasks rather than consider measures.
A conference committee is a temporary joint committee formed to
resolve differences in Senate-passed and House-passed versions of a
particular measure.
View the joint
committees of the House of Representatives.
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8. What are
subcommittees?
Most committees form subcommittees with legislative
jurisdiction to consider and report bills in particular issues
within the purview of the full committee. Committees may assign
their subcommittees such specific tasks as the initial consideration
of measures and oversight of laws and programs in their areas.
Subcommittees are responsible to and work with guidelines
established by their parent committees. Consequently, their number,
independence, and autonomy vary among committees.
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9. What is the purpose of a
committee hearing?
Committees frequently hold hearings to receive
testimony from individuals not on the committee. Hearings may be for
legislative, oversight, or investigative purposes. Legislative
hearings are those addressing measures before the committee, and
they may address many measures on a given subject. Oversight
hearings focus on the implementation and administration of programs
created by law. Many committees perform oversight when reauthorizing
funds for a program, which may occur annually. Investigative
hearings often address allegations of wrongdoing by public officials
or private citizens, or determine the facts of a major disaster or
crisis. Oversight and investigative hearings may lead to the
introduction of legislative proposals. House
Committee Hearing Transcripts are available from the Library of
Congress' THOMAS Bill and Summary service.
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10. What is meant by
markup?
Following legislative hearings, a committee decides
whether to report a measure, in which case it chooses a specific
measure and perfects it through amendment. A business meeting for
this purpose is called a markup. Both chambers require a minimum
quorum of one-third of a committee's members to hold a markup
session, and some committees establish a higher one. The process may
be formal for controversial measures or relaxed for ones less
contentious. In leading a markup, the chairman generally chooses the
legislative vehicle, and presents it for consideration and
amendment. This vehicle may be an introduced bill, or another
version prepared by committee staff at the direction of the chair.
Many individuals attempt to influence the content of measures,
sometimes suggesting alternative language. A Member may offer an
amendment containing alternative language, and a majority of a
quorum is needed to adopt an amendment.
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11. What is a committee
report?
A reported measure usually is accompanied by a
written document, called a report, describing the measure's purposes
and provisions and telling Members why this version has been
reported and why it should be passed. The report reflects the views
of a majority of the committee, but also may contain minority,
supplemental, or additional views of committee members. It usually
includes estimates of the legislation's cost if it were to become
law, various statements of its impact and application, a
section-by-section analysis, and a comparison with existing law.
Officials of the executive and judicial branches of government use
these reports to determine the legislative history of laws and
Congress' intent in enacting them. House
Committee Reports from the 104th Congress to present are
available from the Library of Congress' THOMAS Bill and Summary
service.
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