When bills, passed in one House and sent to the other, are grounded on special facts requiring proof, it is usual, either by message or at a conference, to ask the grounds and evidence; and this evidence, whether arising out of papers, or from the examination of witnesses, is immediately communicated. 3 Hats., 48.

NOTE.-See Senate Rule XXV.

SEC. XLV. AMENDMENTS BETWEEN THE HOUSES.

When either House, e. g., the House of Commons, sends a bill to the other, the other may pass it with amendments. The regular progression in this case is, that the Commons disagree to the amendment; the Lords insist on it; the Commons insist on their disagreement; the Lords adhere to their amendment; the Commons adhere to their disagreement. The term of insist

ing may be repeated as often as they choose to keep the question open. But the first adherence by either renders it necessary for the other to recede or adhere also; when the matter is usually suffered to fall. 10 Grey, 148. Latterly, however, there are instances of their having gone to a second adherence. There must be an absolute conclusion of the subject somewhere, or otherwise transactions between the Houses would become

endless. 3 Hats., 268, 270. The term of insisting, we are told by Sir John Trevor, was then (1679) newly introduced into parliamentary usage, by the Lords. 7 Grey, 94. It was certainly a happy innovation, as it multiplies the opportunities of trying modifications which may bring the Houses to a concurrence. Either House, however, is free to pass over the term of insisting, and to adhere in the first instance (10 Grey, 146), but it is not respectful to the other. In the ordinary parliamentary course, there are two free conferences, at least, before an adherence. 10 Grey, 147.

Either House may recede from its amendment and agree to the bill; or recede from its disagreement to the amendment, and agree to the same absolutely, or with an amendment; for

here the disagreement and receding destroy one another, and the subject stands as before the disagreement. Elysnge, 23, 27; 9 Grey, 476.

But the House can not recede from or insist on its own amendment with an amendment, for the same reason that it can not send to the other House an amendment to its own act after it has passed the act. They may modify an amendment from the other House by ingrafting an amendment on it, because they have never assented to it; but they can not amend their own amendment, because they have, on the question, passed it in that form. 9 Grey, 363; 10 Grey, 240. In Senate, March 29, 1798. 'Nor where one House has adhered to their amendment, and the other agrees with an amendment, can the first House depart from the form which they have fixed by an adherence.

In the case of a money bill, the Lords proposed amendments, become, by delay, confessedly necessary. The Commons, however, refused them, as infringing on their privilege as to money bills; but they offered themselves to add to the bill a proviso to the same effect, which had no coherence with the Lords' amendments; and urged that it was an expedient warranted by precedent, and not unparliamentary in a case become impracticable and irremediable in any other way. 3 Hats., 256, 266, 270, 271. But the Lords refused, and the bill was lost. I Chand., 288. A like case, I Chand., 311. So the Commons resolved that it is unparliamentary to strike out, at a conference, anything in a bill which hath been agreed and passed by both Houses. 6 Grey, 274; 1 Chand., 312.

A motion to amend an amendment from the other House takes precedence of a motion to agree or disagree.

A bill originating in one House is passed by the other with an amendment.

The originating House agrees to their amendment with an amendment. The other may agree to their amendment with an amendment, that being only in the second and not the third degree; for, as to the amending House, the first amendment

with which they passed the bill is a part of its text; it is the only text they have agreed to. The amendment to that text by the originating House, therefore, is only in the first degree, and the amendment to that again by the amending House is only in the second-to wit, an amendment to an amendmentand so admissible. Just so, when, on a bill from the originating House, the other, at its second reading, makes an amendment. On the third reading this amendment is become the text of the bill, and if an amendment to it be moved, an amendment to that amendment may also be moved, as being only in the second degree.

SEC. XLVI. CONFERENCES.

It is on the occasion of amendments between the Houses that conferences are usually asked; but they may be asked in all cases of difference of opinion between the two Houses on matters depending between them. The request of a conference, however, must always be by the House which is possessed of the papers. 3 Hats., 31; 1 Grey, 425.

Conferences may be either simple or free. At a conference simply, written reasons are prepared by the House asking it, and they are read and delivered, without debate, to the managers of the other House at the conference; but are not then to be answered. 4 Grey, 144. The other House then, if satisfied, vote the reasons satisfactory, or say nothing; if not satisfied, they resolve them not satisfactory and ask a conference on the subject of the last conference, where they read and deliver, in like manner, written answers to those reasons. 3 Grey, 183. They are meant chiefly to record the justification of each House to the nation at large, and to posterity, and in proof that the miscarriage of a necessary measure is not imputable to them. 3 Grey, 255. At free conferences, the managers discuss, viva voce and freely, and interchange propositions for such modifications as may be made in a parliamentary way, and may bring the sense of the two Houses together. And each party reports

in writing to its respective House the substance of what is said on both sides, and it is entered in its Journal. 9 Grey, 220; 3 Hats., 280. This report can not be amended or altered, as that of a committee may be. Journal Senate, May 24, 1796.

A conference may be asked before the House asking it has come to a resolution of disagreement, insisting or adhering.* 3 Hats., 269, 341. In which case the papers are not left with the other conferees, but are brought back to be the foundation of the vote to be given. And this is the most reasonable and respectful proceeding; for, as was urged by the Lords on a particular occasion, "it is held vain and below the wisdom of Parliament to reason or argue against fixed resolutions, and upon terms of impossibility to persuade." 3 Hats., 226. So the Commons say, "an adherence is never delivered at a free conference, which implies debate." 10 Grey, 137. And on another occasion the Lords made it an objection that the Commons had asked a free conference after they had made resolutions of adhering. It was then affirmed, however, on the part of the Commons, that nothing was more parliamentary than to proceed with free conferences after adhering (3 Hats., 269), and we do in fact see instances of conference, or of free conference, asked after the resolution of disagreeing (3 Hats., 251, 253, 260, 286, 291, 316, 349); of insisting (ib., 280, 296, 299, 319, 322, 355); of adhering (ib., 269, 270, 283, 300), and even of a second or final adherence (3 Hats., 270). And in all cases of conference asked after a vote of disagreement, etc., the conferees of the House asking it are to leave the papers with the conferees of the other; and in one case where they refused to receive them

*Several instances have arisen in the Senate where a conference has been asked immediately upon the passage of a House bill with amendments, and before the House had come to a disagreeing vote upon the Senate amendments. See Senate Journal, second session, Forty-second Congress, pages 851 and 1003; Senate Journal, third session, Forty-fifth Congress, page 433; Senate Journal, first session, Forty-eighth Congress, pages 628 and 643. See also Congressional Record, vol. 15, part 4, pages 3975 and 4100 (first session, Forty-eighth Congress), where the principle involved was discussed.

they were left on the table in the conference chamber. Ib., 271, 317, 323, 354; 10 Grey, 146.

After a free conference, the usage is to proceed with free conferences, and not to return again to a conference. 3 Hats., 270; 9 Grey, 229.

After a conference is denied, a free conference may be asked. I Grey, 45.

When a conference is asked, the subject of it must be expressed, or the conference not agreed to. Ord. H. Com., 89; 1 Grey, 425; 7 Grey, 31. They are sometimes asked to inquire concerning an offense or default of a member of the other House. 6 Grey, 181; 1 Chand., 304. Or the failure of the other House to present to the King a bill passed by both Houses. 8 Grey, 302. Or on information received, and relating to the safety of the nation. 10 Grey, 171. Or when the methods of Parliament are thought by the one House to have been departed from by the other, a conference is asked to come to a right understanding thereon. 10 Grey, 148. So when an unparliamentary message has been sent, instead of answering it they ask a conference. 3 Grey, 155. Formerly an address or articles of impeachment, or a bill with amendments, or a vote of the House, or concurrence in a vote, or a message from the King, were sometimes communicated by way of conference. 6 Grey, 128, 300, 387; 7 Grey, 80; 8 Grey, 210, 255; 1 Torbuck's Deb., 278; 10 Grey, 293; 1 Chan., 49, 287. But this is not the modern practice. 8 Gy, 255.

conference has been asked after the first reading of a bill. I Grey, 194. This is a singular instance.

NOTE.-See Senate Rule XXVII.

SEC. XLVII. MESSAGES.

Messages between the Houses are to be sent only while both Houses are sitting. 3 Hats., 15. They are received during a debate without adjourning the debate. 3 Hats., 22.

In the Senate the messengers are introduced in any state of business, except (1) while a question is being put; (2) while the