INSIDE THE LEGISLATIVE PROCESS

INSIDE THE LEGISLATIVE PROCESS A comprehensive survey by the American Society of Legislative Clerks and Secretaries in cooperation with the William T. Pound, Executive Director 7700 East First Place Denver, Colorado 80230 444 North Capitol Avenue N.W., Suite 515 Washington, D.C. 20001 www.ncsl.org Revised September 2009

1996 printing, February 1998 1997 revision, November 1998 1998 revision, September 2000 1999 revision, September 2000 2000 revision, September 2001 2002 revision, October 2003 2004 revision, October 2005 2006 revision, October 2007 2008 revision, September 2009 The is the bipartisan organization that serves the legislators and staffs of the states, commonwealths and territories. NCSL provides research, technical assistance and opportunities for policymakers to exchange ideas on the most pressing state issues and is an effective and respected advocate for the i nterests of the states in the American federal system. Its objectives are: To improve the quality and effectiveness of state legislatures. To promote policy innovation and communication among state legislatures. To ensure state legislatures a strong, cohesive voice in the federal system. The Conference operates from offices in Denver, Colorado, and Washington, D.C. 2009 by the. All rights reserved. ISBN 1 55516 901 5 ii

Contents 1. Introduction... 1 1 2. Legislative Organization... 2 1 Opening Day of Session... 2 1 New Member Orientation... 2 17 Legislative Party Caucuses... 2 35 Legislative Leaders... 2 49 Legislative Organizational Sessions... 2 133 Transition Process... 2 157 Legislative Sessions... 2 169 3. Bills and Bill Processing... 3 1 Mechanisms Used to Streamline Bill Processing... 3 1 Sponsorship Limits for Legislation... 3 13 Referral of Bills... 3 17 The Engrossing Process... 3 31 Enrolling Procedures... 3 57 Bill Prefiling... 3 91 Personal, Ceremonial, Congratulatory or Courtesy Resolutions... 3 111 Recall of Bills... 3 129 4. Committee Procedures... 4 1 Standing Committees... 4 1 Subcommittees... 4 31 Conference Committees... 4 39 Rules Committees... 4 61 Committee Consideration of Bills... 4 79 5. Floor Action... 5 1 Floor Amendments... 5 1 Vote Requirements... 5 7 Roll Call Voting Machines and Practices... 5 19 The Calendaring Process... 5 39 Germaneness Requirements... 5 59 Reconsideration Processes... 5 89 Prayer Practices... 5 145 Floor Amendment Procedures... 5 179 Readings of Bills... 5 221 Mandatory Roll Call Votes... 5 261 iii

6. General Legislative Procedures... 6 1 Censure, Expulsion and Other Disciplinary Actions... 6 1 End of Session Logjam... 6 15 The Veto Process... 6 29 Open Meetings and Notice Requirements... 6 65 Messaging... 6 109 7. Legislative Documents... 7 1 Access to Printed Legislative Documents... 7 1 Electronic Access to Legislative Documents... 7 45 The Legislative Journal... 7 59 Archiving Legislative Documents... 7 129 Automation of Journal Production... 7 167 8. Public Information... 8 1 Communicating with Legislators... 8 1 Recording Legislative Proceedings... 8 23 Media or Public Information Services... 8 75. Office 9 of the Chief Clerk or Secretary... 9 1 The Principal Clerk or Secretary... 9 1 Other Chamber Officers and Staff... 9 21 Parliamentary Authority... 9 55 iv

List of Tables 1. Introduction Table 96 1.1 1996 Survey Respondents... 1 2 Table 97 1.2 1997 Survey Respondents... 1 4 Table 98 1.3 1998 Survey Respondents... 1 6 Table 99 1.4 1999 Survey Respondents... 1 8 Table 00 1.5 2000 Survey Respondents... 1 10 Table 02 1.6 2002 Survey Respondents... 1 12 Table 04 1.7 2004 Survey Respondents... 1 14 Table 06 1.8 2006 Survey Respondents... 1 16 Table 08 1.9 2008 Survey Respondents... 1 18 2. Legislative Organization Table 96 2.1 Who Presides over Opening Session... 2 4 Table 96 2.2 Who Acts as the Temporary Clerk... 2 7 Table 96 2.3 Order of Business for Selected Items on Opening Day of the Senate... 2 10 Table 96 2.4 Order of Business for Selected Items on Opening Day of the House... 2 13 Table 96 2.5 Who Plans New Member Orientation... 2 20 Table 96 2.6 New Member Orientation Program Length, Reimbursements and Training Tools... 2 23 Table 96 2.7 Procedural Topics Covered during New Member Orientation... 2 27 Table 96 2.8 Substantive Topics Covered by New Member Orientation... 2 31 Table 99 2.9 Main Functions of the Majority Caucus... 2 37 Table 99 2.10 Main Functions of the Minority Caucus... 2 40 Table 99 2.11 Openness of Majority Caucus Meetings... 2 43 Table 99 2.12 Openness of Minority Caucus Meetings... 2 46 Table 99 2.13 Leadership Positions in State Legislatures... 2 52 Table 99 2.14 Leadership Selection By a Vote of the Full Body... 2 65 Table 99 2.15 Leadership Selection By a Vote of the Majority Caucus... 2 68 Table 99 2.16 Leadership Selection By a Vote of the Minority Caucus... 2 71 Table 99 2.17 Leadership Selection Appointed by the President or Speaker... 2 74 Table 99 2.18 Leadership Selection Appointed by the Minority Leader... 2 77 Table 99 2.19 Term Limits on Leadership Positions... 2 80 Table 99 2.20 Major Roles and Responsibilities President of the Senate... 2 82 Table 99 2.21 More Duties of the President of the Senate... 2 85 Table 99 2.22 Major Roles and Responsibilities President Pro Tem or Vice President... 2 88 Table 99 2.23 More Duties of the President Pro Tem or Vice President... 2 91 v

Table 99 2.24 Major Roles and Responsibilities Speaker of the House or Senate... 2 94 Table 99 2.25 More Duties of the Speaker of the House or Senate... 2 97 Table 99 2.26 Major Roles and Responsibilities Speaker Pro Tem... 2 100 Table 99 2.27 Major Roles and Responsibilities Majority Leader or Majority Floor Leader... 2 103 Table 99 2.28 More Duties of the Majority Leader or Majority Floor Leader... 2 106 Table 99 2.29 Major Roles and Responsibilities Assistant Majority Leader or Assistant Majority Floor Leader... 2 109 Table 99 2.30 Major Roles and Responsibilities Majority Whip... 2 112 Table 99 2.31 Major Roles and Responsibilities Majority Caucus Chair... 2 115 Table 99 2.32 Major Roles and Responsibilities Minority Leader or Minority Floor Leader... 2 118 Table 99 2.33 More Duties of the Minority Leader or Minority Floor Leader... 2 121 Table 99 2.34 Major Roles and Responsibilities Assistant Minority Leader or Assistant Minority Floor Leader... 2 124 Table 99 2.35 Major Roles and Responsibilities Minority Whip... 2 127 Table 99 2.36 Major Roles and Responsibilities Minority Caucus Chair... 2 130 Table 00 2.37 Organizational Sessions or Caucuses... 2 135 Table 00 2.38 Organizational Sessions for the Full Body... 2 136 Table 00 2.39 Organizational Sessions for Political Caucuses... 2 139 Table 00 2.40 When Organizational Sessions Are Held for the Full Body... 2 142 Table 00 2.41 When Organizational Caucuses Are Held... 2 145 Table 00 2.42 Organizational Session Activities by the Full Body... 2 148 Table 00 2.43 More Organizational Session Activities by the Full Body... 2 151 Table 00 2.44 Organizational Caucus Activities... 2 154 Table 00 2.45 Use of a Transition Process... 2 159 Table 00 2.46 Benefits of a Transition Process... 2 160 Table 00 2.47 Transition Processes... 2 163 Table 00 2.48 More Transition Procedures... 2 166 Table 04 2.49 Arguments for Annual and Biennial Sessions... 2 172 Table 04 2.50 Methods by Which Session Length Is Limited... 2 173 Table 04 2.51 Ability to Extend Regular Session... 2 174 Table 04 2.52 Extended Breaks During Regular Session... 2 175 Table 04 2.53 Who May Call A Special Session... 2 179 Table 04 2.54 How the Legislature Calls a Special Session... 2 180 Table 04 2.55 Limit on the Length of a Special Session... 2 183 vi

3. Bills and Bill Processing Table 96 3.1 Bill Introduction Limits... 3 4 Table 96 3.2 Legislative Deadline Systems... 3 7 Table 96 3.3 Other Common Streamlining Mechanisms... 3 10 Table 96 3.4 Examples of Sponsor Deadlines... 3 15 Table 96 3.5 Final Referral of a Bill... 3 18 Table 96 3.6 Criteria used to Refer Bills... 3 21 Table 96 3.7 Suggestions on Bill Referrals... 3 24 Table 96 3.8 Changing the Final Referral of a Bill... 3 27 Table 98 3.9 Which Chambers Engross Bills?... 3 34 Table 98 3.10 When the Senate Engrosses Senate Bills... 3 35 Table 98 3.11 When the House Engrosses House Bills... 3 37 Table 98 3.12 Type of Engrossing Process Used... 3 39 Table 98 3.13 Differentiation among Bill Versions... 3 42 Table 98 3.14 Process Used to Correct Engrossing Errors... 3 45 Table 98 3.15 Use of Unofficial Engrossments... 3 48 Table 98 3.16 Location of Engrossing Office or Staff... 3 50 Table 98 3.17 Number of Engrossing Staff... 3 53 Table 98 3.18 Retention of Highlighting Used to Indicate New or Deleted Text... 3 60 Table 98 3.19 Who Assigns Chapter or Act Numbers?... 3 61 Table 98 3.20 Is the Act or Chapter Number Assigned Before Enrolling?... 3 64 Table 98 3.21 Signature Lines... 3 67 Table 98 3.22 Who Obtains Signatures?... 3 70 Table 98 3.23 Who Delivers an Enrolled Bill to the Governor?... 3 73 Table 98 3.24 Correction of Errors in Enrolled Bills Senate... 3 76 Table 98 3.25 Correction of Errors in Enrolled Bills House... 3 80 Table 98 3.26 Location of Enrolling Office or Staff... 3 84 Table 98 3.27 Number of Enrolling Staff... 3 87 Table 02 3.28 Bill Prefiling Is Allowed... 3 93 Table 02 3.29 When Prefiling Is Allowed... 3 94 Table 02 3.30 Prefiling Process Varies... 3 96 Table 02 3.31 Specific Time Frame Within Which Prefiling is Open... 3 97 Table 02 3.32 Who May Prefile a Bill... 3 99 Table 02 3.33 Limit on the Number of Bills That May Be Prefiled... 3 101 Table 02 3.34 What Happens to a Bill After It Is Prefiled... 3 102 Table 02 3.35 Formal Introduction When Session Convenes... 3 105 Table 02 3.36 Use of Prefiling in the Past Five Years... 3 106 Table 02 3.37 Percent of Bills Prefiled in 1999 and 2000... 3 108 Table 02 3.38 Types of Personal or Congratulatory Instruments Used... 112 Table 02 3.39 Use of Personal or Congratulatory Instruments in the Past Five Years... 3 115 Table 02 3.40 Introduction Deadlines for Personal or Congratulatory Instruments... 3 117 Table 02 3.41 Types of Personal or Congratulatory Instruments that Are Referred to Committee... 3 118 vii

Table 02 3.42 Types of Personal or Congratulatory Instruments that Are Considered on the Floor... 3 120 Table 02 3.43 Types of Personal or Congratulatory Instruments that Are Placed on a Floor Calendar... 3 122 Table 02 3.44 Types of Personal or Congratulatory Instruments on Which a Floor Vote Is Taken... 3 124 Table 02 3.45 Floor Presentation to Recipient... 3 126 Table 02 3.46 Examples of Procedures Implemented to Save Time on or Reduce Use of Personal or Congratulatory Instruments... 3 127 4. Committee Procedures Table 96 4.1 Methods Used to Establish Standing Committee Jurisdictions... 4 6 Table 96 4.2 Determining the Number of Standing Committees... 4 8 Table 96 4.3 Number of Standing Committees... 4 9 Table 96 4.4 Appointment of Standing Committee Chairs... 4 11 Table 96 4.5 Criteria Considered when Appointing Committee Chairs... 4 13 Table 96 4.6 Average Number of Committee Assignments per Member... 4 16 Table 96 4.7 Appointment of Majority Party Members to Standing Committees... 4 18 Table 96 4.8 Appointment of Minority Party Members to Standing Committees... 4 20 Table 96 4.9 Criteria Considered When Appointing Committee Members... 4 22 Table 96 4.10 Proportional Representation on Committees... 4 25 Table 96 4.11 Permanent Rules of Procedure for Committees... 4 28 Table 96 4.12 Creation of Subcommittees... 4 32 Table 96 4.13 Commonly Used Subcommittees... 4 33 Table 96 4.14 Average Subcommittee Size... 4 36 Table 96 4.15 Appointment of Subcommittee Members... 4 38 Table 96 4.16 Number of Members Appointed to Conference Committees... 4 43 Table 96 4.17 Conference Committee Appointments... 4 46 Table 96 4.18 Criteria Considered When Appointing Conference Committees... 4 48 Table 96 4.19 Selection of the Conference Committee Chair... 4 51 Table 96 4.20 Scope of Consideration for Conference Committees... 4 53 Table 96 4.21 Vote and Signature Requirements... 4 54 Table 96 4.22 Chamber First to Consider a Conference Report... 4 57 Table 96 4.23 Floor Vote to Adopt a Conference Report... 4 58 viii

Table 97 4.24 Who Serves as Rules Committee Chair... 4 64 Table 97 4.25 Who Appoints Rules Committee Members... 4 67 Table 97 4.26 Number of Rules Committee Members... 4 70 Table 97 4.27 Powers of Rules Committees... 4 73 Table 97 4.28 More Powers of Rules Committees... 4 76 Table 04 4.29 Who Determines Which Bills Will Be Heard... 4 81 Table 04 4.30 Who Determines When a Bill Will Be Heard... 4 84 Table 04 4.31 Requirement for Standing Committees to Hear All Bills... 4 87 Table 04 4.32 Options Available to Standing Committees for Disposing of Bills... 4 89 Table 04 4.33 Requirement for Standing Committees to Report All Bills... 4 92 Table 04 4.34 Information in Committee Reports... 4 94 Table 04 4.35 Requirement for Committee Minutes... 4 98 Table 04 4.36 Committee Minutes Are an Official Record of the Body... 4 99 Table 04 4.37 Items Included in Committee Minutes... 4 100 Table 04 4.38 More Items Included in Committee Minutes... 4 102 Table 04 4.39 Even More Items Included in Committee Minutes... 4 104 Table 04 4.40 Deadline for the Completion of Committee Minutes... 4 107 Table 04 4.41 Approval of Committee Minutes... 4 109 Table 04 4.42 Format by Which Minutes Are Provided to Committee Members... 4 111 Table 04 4.43 How Committee Minutes May Be Obtained... 4 114 5. Floor Action Table 96 5.1 When Bills Normally Are Amended... 5 3 Table 96 5.2 Written Analysis for Floor Amendments... 5 6 Table 96 5.3 Vote Required to Suspend Chamber Rules... 5 9 Table 96 5.4 Main Actions Requiring Extraordinary Votes... 5 12 Table 96 5.5 Other Common Issues Requiring Extraordinary Votes... 5 14 Table 96 5.6 Voting Systems in State Legislatures... 5 23 Table 96 5.7 Voting System Installations and Upgrades... 5 26 Table 96 5.8 Main Features of Current Electronic Voting Systems... 5 29 Table 96 5.9 Linking Voting Systems... 5 32 Table 96 5.10 When Roll Call Votes Are Subject to Change... 5 35 Table 98 5.11 Use of Calendars... 5 42 Table 98 5.12 Types of Calendars Used... 5 43 Table 98 5.13 How Bills Are Placed on a Daily Calendar with Subheadings... 5 46 Table 98 5.14 How Bills Are Placed on the Second Reading Calendar... 5 48 Table 98 5.15 How Bills Are Placed on the Third Reading or Final Passage Calendar... 5 49 Table 98 5.16 How Bills Are Placed on the Consent Calendar... 5 51 Table 98 5.17 How Bills Are Placed on a Special Orders Calendar... 5 52 Table 98 5.18 Removing Bills from the Consent Calendar... 5 53 Table 98 5.19 Voting on the Consent Calendar... 5 55 ix

Table 00 5.20 Constitutional Provisions that Limit Bills to One Subject... 5 62 Table 00 5.21 Chamber Rules Contain a Germaneness Provision... 5 64 Table 00 5.22 Germaneness Enforced in Committee... 5 67 Table 00 5.23 Main Germaneness Language or Tests... 5 68 Table 00 5.24 More Germaneness Language or Tests... 5 71 Table 00 5.25 Germaneness Provisions from Selected Parliamentary Manuals... 5 74 Table 00 5.26 Member Challenges Based on Germaneness... 5 79 Table 00 5.27 Number of Court Challenges... 5 82 Table 00 5.28 Changes in Court Interpretations... 5 85 Table 00 5.29 Different Reconsideration Process Used in Committee... 5 93 Table 00 5.30 Reconsideration Allowed in Committee... 5 94 Table 00 5.31 Who May Give Notice of Reconsideration... 5 95 Table 00 5.32 Who May Move Reconsideration... 5 98 Table 00 5.33 Notice Requirement for Reconsideration... 5 101 Table 00 5.34 Notice Period... 5 104 Table 00 5.35 Reconsideration Must Be Moved within Set Time... 5 107 Table 00 5.36 Time Frame for Reconsideration on the Floor... 5 110 Table 00 5.37 Time Frame for Reconsideration in Committee... 5 113 Table 00 5.38 Clerk Retains Bills during Reconsideration Period... 5 116 Table 00 5.39 Mechanism to Request the Return of a Bill... 5 117 Table 00 5.40 Return of Bill Is Required... 5 118 Table 00 5.41 Reconsideration Motion Is Debatable... 5 119 Table 00 5.42 Limits on Reconsideration Debate... 5 120 Table 00 5.43 Limits on the Reconsideration Motion... 5 121 Table 00 5.44 Items Exempt from Reconsideration... 5 124 Table 00 5.45 More Items Exempt from Reconsideration... 5 127 Table 00 5.46 Reconsideration Process Changes... 5 130 Table 00 5.47 Vote Requirement... 5 131 Table 00 5.48 Summary of Responses to Case Study #1... 5 134 Table 00 5.49 Summary of Responses to Case Study #2... 5 139 Table 02 5.50 Opening Prayer Offered Each Session Day... 5 148 Table 02 5.51 When the Prayer Is Offered... 5 149 Table 02 5.52 Who Delivers the Prayer... 5 151 Table 02 5.53 Guidelines for Delivering an Opening Prayer... 5 153 Table 02 5.54 Who Develops the Prayer Guidelines... 5 154 Table 02 5.55 Opening Prayers Are Reviewed Before Presentation... 5 157 Table 02 5.56 Designated Senate or House Chaplain... 5 158 Table 02 5.57 Employment Status of the Senate or House Chaplain... 5 159 Table 02 5.58 Who Selects the Senate or House Chaplain... 5 161 Table 02 5.59 Senate or House Chaplain Rotates among Religions... 5 164 Table 02 5.60 Compensation for the Senate or House Chaplain... 5 165 Table 02 5.61 Use of Visiting Chaplains... 5 167 Table 02 5.62 Who Chooses the Visiting Chaplain... 5 168 Table 02 5.63 Visiting Chaplains Rotate Among Religions... 5 171 Table 02 5.64 Compensation for Visiting Chaplains... 5 172 Table 02 5.65 Commemorations for Visiting Chaplains... 5 174 x

Table 06 5.66 Use of Floor Amendments... 5 181 Table 06 5.67 Floor Amendments Must Be Drafted or Revised by a Legislative or Chamber Drafting Office... 5 182 Table 06 5.68 Floor Amendments Must Be Prefiled... 5 184 Table 06 5.69 Deadlines for Prefiling Floor Amendments... 5 185 Table 06 5.70 Requirement to Allow Late Filed Floor Amendments... 5 187 Table 06 5.71 Amendments to Amendments... 5 188 Table 06 5.72 Divided Amendments... 5 189 Table 06 5.73 Conceptual Amendments... 5 190 Table 06 5.74 Budget Amendments Are Handled Differently... 5 191 Table 06 5.75 Display of Floor Amendments... 5 192 Table 06 5.76 Extent to Which Written Analyses Are Provided for Floor Amendments... 5 194 Table 06 5.77 When and How Floor Amendments Are Made Available to the Public... 5 196 Table 06 5.78 Where and By Whom Engrossing and Enrolling Are Done... 5 202 Table 06 5.79 Engrossers Are Attorneys... 5 204 Table 06 5.80 Format in Which Floor Amendments Are Transmitted to the Engrossing Staff... 5 205 Table 06 5.81 How Floor Amendments Are Incorporated into Bills... 5 207 Table 06 5.82 A Chamber May Engross Floor Amendments into the Other Chamber's Bills... 5 210 Table 06 5.83 A Process Exists for Engrossing Staff to Follow When Conflicting Amendments Are Adopted... 5 212 Table 06 5.84 Process Followed When Conflicting Amendments Are Adopted... 5 214 Table 06 5.85 A Process Exists to Waive Engrossment of Floor Amendments to Expedite Transmittal of the Bill to the Other Chamber... 5 218 Table 06 5.86 Policy or Process Followed to Waive Engrossment of Floor Amendments to Expedite Transmittal... 5 220 Table 08 5.87 A Bill Is Read a Set Number of Times... 5 223 Table 08 5.88 A Reading of a Bill Can Be Waived... 5 225 Table 08 5.89 The Readings of a Bill Must Be on Separate Days... 5 226 Table 08 5.90 The Provision for Readings on Separate Days Can Be Waived... 5 227 Table 08 5.91 When a Bill Is Required to Be Read in Full... 5 228 Table 08 5.92 If not Read in Full, What Constitutes the Reading of a Bill on First Reading?... 5 232 Table 08 5.93 If not Read in Full, What Constitutes the Reading of a Bill on Second Reading?... 5 235 Table 08 5.94 If not Read in Full, What Constitutes the Reading of a Bill on Third Reading?... 5 239 Table 08 5.95 Time that a Bill Must Lie on Members' Desks Before It Can Be Considered on First Reading... 5 242 Table 08 5.96 Time that a Bill Must Lie on Members' Desks Before It Can Be Considered on Second Reading... 5 245 xi

Table 08 5.97 Time that a Bill Must Lie on Members' Desks Before It Can Be Considered on Third Reading... 5 248 Table 08 5.98 Time that a Typical Bill Must Lie on Members' Desks Before It Can Be Considered on Concurrence... 5 251 Table 08 5.99 Time that a Budget or Tax Bill Must Lie on Members' Desks Before It Can Be Considered on Concurrence... 5 254 Table 08 5.100 Time that a Conference Report Must Lie on Members' Desks Before It Can Be Considered... 5 257 Table 08 5.101 Stages in the Passage of a Bill at Which a Roll Call Vote Is Mandatory... 5 262 Table 08 5.102 More Stages in the Passage of a Bill at Which a Roll Call Vote Is Mandatory... 5 264 Table 08 5.103 Number of Members Required to Request a Roll Call Vote... 5 266 Table 08 5.104 Vote Requirement for Final Passage "Typical" Bill... 5 268 Table 08 5.105 Vote Requirement for Final Passage Appropriation or Budget Bill... 5 270 Table 08 5.106 Vote Requirement for Final Passage Revenue or Tax Bill... 5 273 Table 08 5.107 Vote Requirement for Final Passage Emergency Legislation... 5 276 6. Gener al Legislative Procedures Table 96 6.1 Grounds for Censure, Expulsion or Other Disciplinary Actions... 6 4 Table 96 6.2 Censure, Expulsion or Other Disciplinary Actions Taken... 6 6 Table 96 6.3 Examples of Disciplinary Actions Senate... 6 9 Table 96 6.4 Examples of Disciplinary Actions House... 6 12 Table 96 6.5 Major Contributors to End of Session Logjam... 6 18 Table 98 6.6 Other Causes of Logjam... 6 21 Table 98 6.7 Frequency of Session Logjam... 6 24 Table 98 6.8 Intensity of Session Logjam During the Past Five Years... 6 27 Table 98 6.9 Recommendations to Minimize End of Session Logjam... 6 28 Table 98 6.10 Chronological Order in Which States Adopted Item Veto... 6 34 Table 98 6.11 Measures Exempt from Veto... 6 35 Table 98 6.12 Time Frame that Governor Has to Consider Bills... 6 38 Table 98 6.13 Exclusions to the Time Limits for Gubernatorial Action... 6 40 Table 98 6.14 Gubernatorial Inaction Results in Law... 6 41 Table 98 6.15 Pocket Veto Power... 6 42 Table 98 6.16 To Whom the Vetoed Bill Is Returned... 6 43 Table 98 6.17 What the Governor Must Send with a Vetoed Bill... 6 46 Table 98 6.18 To Whom the Veto Message Is Provided During Session... 6 49 Table 98 6.19 To Whom the Veto Message Is Provided After Adjournment... 6 52 Table 98 6.20 When Vetoes Are Considered During Session... 6 55 Table 98 6.21 When Vetoes Are Considered After Adjournment... 6 59 Table 98 6.22 Vote Required to Override A Veto of Selected Types of Bills... 6 62 xii

Table 02 6.23 Floor Sessions Must Be Open... 6 67 Table 02 6.24 Where Requirement for Open Floor Sessions Is Found... 6 68 Table 02 6.25 Ability to Close Floor Sessions... 6 70 Table 02 6.26 Vote Required to Close Floor Session... 6 71 Table 02 6.27 Standing Committee Meetings Must Be Open... 6 74 Table 02 6.28 Where Requirement for Open Standing Committee Meetings Is Found... 6 75 Table 02 6.29 Ability to Close Standing Committee Meetings... 6 77 Table 02 6.30 Vote Required to Close a Standing Committee Meeting... 6 78 Table 02 6.31 Conference Committee Meetings Must Be Open... 6 81 Table 02 6.32 Where Requirement for Open Conference Committee Meetings Is Found... 6 82 Table 02 6.33 Ability to Close Conference Committee Meetings... 6 84 Table 02 6.34 Vote Required to Close a Conference Committee Meeting... 6 85 Table 02 6.35 Interim Committee Meetings Must Be Open... 6 86 Table 02 6.36 Where Requirement for Open Interim Committee Meetings Is Found... 6 87 Table 02 6.37 Ability to Close Interim Committee Meetings... 6 89 Table 02 6.38 Vote Required to Close an Interim Committee Meeting... 6 90 Table 02 6.39 Advance Notice of Standing Committee Meetings... 6 91 Table 02 6.40 Timing for Standing Committee Meeting Notices... 6 92 Table 02 6.41 Advance Notice of Conference Committee Meetings... 6 96 Table 02 6.42 Timing for Conference Committee Meeting Notices... 6 97 Table 02 6.43 Advance Notice of Interim Committee Meetings... 6 99 Table 02 6.44 Timing for Interim Committee Meeting Notices... 6 100 Table 02 6.45 Items Included in a Meeting Notice... 6 102 Table 02 6.46 Committees May Take Up Items Not Listed in Notice... 6 104 Table 02 6.47 Main Methods Used to Publicize Committee Meetings... 6 105 Table 02 6.48 Other Methods Used to Publicize Committee Meetings... 6 107 Table 08 6.49 Use of Messages... 6 111 Table 08 6.50 Main Purposes for Messages Part 1... 6 112 Table 08 6.51 Main Purposes for Messages Part 2... 6 114 Table 08 6.52 Main Purposes for Messages Part 3... 6 116 Table 08 6.53 Who Is Responsible for Sending Messages... 6 119 Table 08 6.54 Formats in Which Messages Are Sent... 6 121 Table 08 6.55 Who Is Responsible for Receiving Messages... 6 123 Table 08 6.56 Receipt of a Message is Required... 6 126 Table 08 6.57 Confirmation of the Receipt of a Message Is Required... 6 129 Table 08 6.58 Where the Receipt of a Message Is Recorded... 6 130 Table 08 6.59 If and When Messages Are Taken Up on the Floor... 6 133 Table 08 6.60 Messages Must Be Taken Up in a Certain Order... 6 136 Table 08 6.61 Bills Are Transmitted with a Message... 6 137 Table 08 6.62 Point at Which a Chamber Has Legal Possession of a Bill... 6 138 Table 08 6.63 How a Mistake in a Message Is Handled... 6 140 Table 08 6.64 Governor May Refuse to Accept Delivery of a Bill... 6 142 xiii

7. Legislative Docume nts Table 97 7.1 Documents Composed by the Clerk's Office... 7 3 Table 97 7.2 Document Layout by the Clerk's Office... 7 6 Table 97 7.3 Documents Printed by the Clerk's Office... 7 9 Table 97 7.4 Documents Printed by a Legislative Print Shop... 7 12 Table 97 7.5 Documents Printed by the State Printer... 7 15 Table 97 7.6 Documents Printed by a Private Contractor... 7 18 Table 97 7.7 Documents Printed Overnight or Sooner... 7 21 Table 97 7.8 Minimum Number of Copies Printed Senate... 7 24 Table 97 7.9 Minimum Number of Copies Printed House... 7 27 Table 97 7.10 Documents Typically Printed on Demand... 7 30 Table 97 7.11 Groups Charged for Multiple Copies of Printed Documents... 7 33 Table 97 7.12 Charges for Printed Legislative Documents Senate... 7 36 Table 97 7.13 Charges for Printed Legislative Documents House... 7 40 Table 97 7.14 Electronic Access Authorized by Internal Policy... 7 47 Table 97 7.15 Groups that Have Access to Documents via the Internet... 7 50 Table 97 7.16 Key Decision Makers for Dial Up Access... 7 53 Table 97 7.17 Key Decision Makers for Internet Access... 7 54 Table 97 7.18 Charges for Electronic Access to Legislative Documents Senate... 7 56 Table 97 7.19 Charges for Electronic Access to Legislative Documents House... 7 57 Table 00 7.20 The Journal Is the Official Record... 7 62 Table 00 7.21 Verbatim Journal... 7 63 Table 00 7.22 Items Included in the Journal Part 1... 7 64 Table 00 7.23 Items Included in the Journal Part 2... 7 67 Table 00 7.24 Items Included in the Journal Part 3... 7 70 Table 00 7.25 Journal Compilation... 7 74 Table 00 7.26 Computer Programs Used to Compile the Journal... 7 77 Table 00 7.27 Journal Proofing... 7 79 Table 00 7.28 Journal Is Approved Each Day... 7 82 Table 00 7.29 Journal Corrections... 7 83 Table 00 7.30 Publication Formats... 7 86 Table 00 7.31 How Often the Journal Is Published Senate... 7 89 Table 00 7.32 How Often the Journal Is Published House... 7 92 Table 00 7.33 Publication Formats that Are Indexed... 7 95 Table 00 7.34 Electronic Versions of the Journal that Are Searchable... 7 98 Table 00 7.35 Index Categories for the Printed Permanent Journal... 7 99 Table 00 7.36 Index Categories for the Internet Journal... 9 102 Table 00 7.37 Method by which the Journal Is Indexed... 7 105 Table 00 7.38 Computer Programs Used to Index the Journal... 7 108 Table 00 7.39 By Whom the Journal Is Printed... 7 110 Table 00 7.40 Other Verbatim Transcripts of Floor Actions... 7 113 Table 00 7.41 Roll Call Votes Are Available Separately from the Journal... 7 116 Table 00 7.42 From Where Separate Roll Call Votes Are Available... 7 117 xiv

Table 00 7.43 Compilation of the Voting Records of Legislators... 7 120 Table 00 7.44 Methods by which Voting Records Are Compiled... 7 121 Table 00 7.45 Computer Programs Used to Compile Voting Records... 7 122 Table 00 7.46 To Whom Voting Records Are Available... 7 124 Table 00 7.47 Format in which Voting Records Are Available... 7 127 Table 00 7.48 Guidelines for Retaining and Archiving Documents... 7 131 Table 00 7.49 Where the Guidelines Are Set... 7 132 Table 00 7.50 Who Implements the Guidelines... 7 135 Table 00 7.51 Guidelines Specify Documents to be Retained and Archived... 7 138 Table 00 7.52 Documents Retained... 7 139 Table 00 7.53 More Documents Retained... 7 142 Table 00 7.54 Length of Time that Documents Are Kept Senate... 7 145 Table 00 7.55 Length of Time that More Documents Are Kept Senate... 7 148 Table 00 7.56 Length of Time that Documents Are Kept House... 7 151 Table 00 7.57 Length of Time that More Documents Are Kept House... 7 154 Table 00 7.58 Status of Specified Records after Retention Period... 7 157 Table 00 7.59 Status of Non Specified Records... 7 160 Table 00 7.60 Methods Used to Archive Documents... 7 163 Table 06 7.61 Number of Journal Staff... 7 168 Table 06 7.62 How the Journal Is Compiled... 7 170 Table 06 7.63 Type of Computer on Which the Journal Is Compiled... 7 172 Table 06 7.64 Origin of the Journal Compilation Process... 7 174 Table 06 7.65 Computer Program s Used for Journal Production... 7 177 Table 06 7.66 Journal Items Compiled by a Cut and Paste Method, Part 1... 7 180 Table 06 7.67 Journal Items Compiled by a Cut and Paste Method, Part 2... 7 182 Table 06 7.68 Journal Items Compiled by a Cut and Paste Method, Part 3... 7 184 Table 06 7.69 Journal Items Compiled by a Cut and Paste Method, Part 4... 7 186 Table 06 7.70 Journal Items Compiled by a Cut and Paste Method, Part 5... 7 188 Table 06 7.71 Journal Items Pulled from an Outside Source, Part 1... 7 190 Table 06 7.72 Journal Items Pulled from an Outside Source, Part 2... 7 192 Table 06 7.73 Journal Items Pulled from an Outside Source, Part 3... 7 194 Table 06 7.74 Journal Items Pulled from an Outside Source, Part 4... 7 196 Table 06 7.75 Journal Items Pulled from an Outside Source, Part 5... 7 198 Table 06 7.76 Journal Items Compiled by Macros, Part 1... 7 200 Table 06 7.77 Journal Items Compiled by Macros, Part 2... 7 202 Table 06 7.78 Journal Items Compiled by Macros, Part 3... 7 204 Table 06 7.79 Journal Items Compiled by Macros, Part 4... 7 206 Table 06 7.80 Journal Items Compiled by Macros, Part 5... 7 208 Table 06 7.81 Journal Items Compiled by Auto Text, Part 1... 7 210 Table 06 7.82 Journal Items Compiled by Auto Text, Part 2... 7 212 Table 06 7.83 Journal Items Compiled by Auto Text, Part 3... 7 214 Table 06 7.84 Journal Items Compiled by Auto Text, Part 4... 7 216 Table 06 7.85 Journal Items Compiled by Auto Text, Part 5... 7 218 xv

Table 06 7.86 Journal Items Compiled by Another Type of Automation, Part 1... 7 220 Table 06 7.87 Journal Items Compiled by Another Type of Automation, Part 2... 7 222 Table 06 7.88 Journal Items Compiled by Another Type of Automation, Part 3... 7 224 Table 06 7.89 Journal Items Compiled by Another Type of Automation, Part 4... 7 226 Table 06 7.90 Journal Items Compiled by Another Type of Automation, Part 5... 7 228 Table 06 7.91 Automated Method to Catch Discrepancies Between Bill Status or History and the Journal... 7 230 Table 06 7.92 A Daily Journal Is Produced... 7 231 Table 06 7.93 The Daily Journal Is Posted on the Internet... 7 232 Table 06 7.94 The Internet Version of the Daily Journal Is Searchable... 7 233 Table 06 7.95 By What the Internet Version of the Daily Journal Is Searchable... 7 234 Table 06 7.96 A Final Bound Journal Is Produced... 7 236 Table 06 7.97 The Final Journal Is Posted on the Internet... 7 237 Table 06 7.98 The Internet Version of the Final Journal Is Searchable... 7 238 Table 06 7.99 By What the Internet Version of the Final Journal Is Searchable... 7 239 8. Publi c Information Table 97 8.1 Outgoing Facsimiles... 8 5 Table 97 8.2 Incoming Facsimiles... 8 8 Table 97 8.3 Facsimile Guidelines... 8 11 Table 97 8.4 No Staff Specifically Assigned to Send or Receive Faxes... 8 14 Table 97 8.5 Incoming E Mail for Legislators... 8 15 Table 97 8.6 Electronic Mail Guidelines... 8 18 Table 99 8.7 Recording Committee Meetings... 8 24 Table 99 8.8 Extent to Which Committee Meetings Are Recorded by Audiotape... 8 27 Table 99 8.9 Extent to Which Committee Meetings Are Recorded by Videotape... 8 30 Table 99 8.10 Extent to Which Committee Meetings Are Recorded by Televised Programming... 8 33 Table 99 8.11 Extent to Which Committee Meetings Are Recorded by Digital File... 8 36 Table 99 8.12 Uses for Committee Recordings... 8 39 Table 99 8.13 Recording Floor Sessions... 8 42 Table 99 8.14 Extent to Which Floor Sessions Are Recorded by Audiotape... 8 45 Table 99 8.15 Extent to Which Floor Sessions Are Recorded by Videotape... 8 48 Table 99 8.16 Extent to Which Floor Sessions Are Recorded by Televised Programming... 8 51 xvi

Table 99 8.17 Extent to Which Floor Sessions Are Recorded by Digital File... 8 54 Table 99 8.18 Uses for Floor Session Recordings... 8 57 Table 99 8.19 Television Coverage of Legislatures... 8 60 Table 99 8.20 Production of Television Coverage... 8 63 Table 99 8.21 Television Broadcast Area... 8 66 Table 99 8.22 Television Cameras on the Chamber Floor... 8 69 Table 99 8.23 Television Cameras in the Gallery... 8 72 Table 99 8.24 Media or Public Information Services for Legislators... 8 77 Table 99 8.25 More Media Services for Legislators... 8 80 Table 99 8.26 Toll free Public Information Phone Lines... 8 83 Table 99 8.27 Space for the Media... 8 86 Table 99 8.28 Charges for Extra Space for the Media... 8 88 Table 99 8.29 Access to the Chamber or Gallery Press Areas... 8 89 Table 99 8.30 Dress Code for Members of the Press... 8 92 Table 99 8.31 Media Circulation during Floor Session... 8 94 Table 99 8.32 Media Circulation during a Recess in Floor Action... 8 95 Table 99 8.33 Accreditation, Certification or Registration for the Media... 8 96 Table 99 8.34 Who is Responsible for Accreditation?... 8 97 Table 99 8.35 Who Investigates Problems or Accusations?... 8 100 9. Office of the Chief C lerk or Secretary Table 99 9.1 Selection of the Clerk or Secretary... 9 2 Table 99 9.2 To Whom the Clerk or Secretary Reports... 9 5 Table 99 9.3 Length of Term... 9 8 Table 99 9.4 Employment Status of the Principal Clerk or Secretary... 9 11 Table 99 9.5 Record Keeping Duties of the Clerk or Secretary... 9 12 Table 99 9.6 Supervisory Duties of the Clerk or Secretary... 9 15 Table 99 9.7 Other Duties of the Clerk or Secretary... 9 18 Table 99 9.8 Number of Staff Supervised by the Clerk... 9 22 Table 99 9.9 Selection of the Assistant Clerk or Secretary... 9 25 Table 99 9.10 Selection of the Journal Clerk... 9 28 Table 99 9.11 Selection of the Calendar Clerk... 9 31 Table 99 9.12 Selection of the Enrolling Clerk... 9 34 Table 99 9.13 Selection of the Engrossing Clerk... 9 37 Table 99 9.14 Selection of the Reading Clerk... 9 40 Table 99 9.15 Selection of the Sergeant at Arms... 9 43 Table 99 9.16 Selection of the Chaplain... 9 46 Table 99 9.17 Employment Status of Selected Positions Senate... 9 49 Table 99 9.18 Employment Status of Selected Positions House... 9 52 Table 99 9.19 Who Acts as the Chamber Parliamentarian?... 9 56 Table 99 9.20 Parliamentary Manuals or Authorities... 9 59 xvii

Acknowledgments The American Society of Legislative Clerks and Secretaries ASLCS and the National Conference of State Legislatures NCSL gratefully acknowledge the many individuals who helped make this publication possible. The members of the ASLCS Committee on Inside the Legislative Process made content decisions and oversaw document production. Numerous legislative clerks and secretaries took time to complete the survey. Special recognition is given to Brenda Erickson, NCSL program principal, who drafted the survey, compiled data, wrote most of the book and coordinated its publication. Thanks also are extended to Leann Stelzer, NCSL editor, who reviewed document drafts. xviii