Rosenberg’s Rules of Order: Simple Parliamentary Procedures for the 21st Century

League of California Cities 1 MISSION: To restore and protect local control for cities through education and advocacy to enhance the quality of life for all Californians.

VISION: To be recognized and respected as the leading advocate for the common interests of California cities.

About the League of California Cities About the Author Established in 1898, the League of California Cities is a mem- Dave Rosenberg is an elected county supervisor representing ber organization that represents California’s incorporated cities. the 4th District in Yolo County. He also serves as director of The League strives to protect the local authority and autonomy community and intergovernmental relations, director of opera- of city government and help California’s cities effectively serve tions, and senior advisor to the governor of California. He has their residents. In addition to advocating on cities’ behalf at the served as a member and chair of numerous state and local state capitol, the League provides its members with professional boards, both appointed and elected, and also served on the development programs and information resources, conducts Davis City Council for 12 years, including two terms as mayor. educational conferences and research, and publishes Western He has taught classes on and has City magazine. served as parliamentarian for large and small governing bodies. In the fall of 2003, Gov. Davis appointed Rosenberg as a judge of the Yolo County Superior Court. About Western City Magazine Western City is the League of California Cities' monthly maga- zine. Western City provides lively, interdisciplinary analyses of issues affecting local governance. Its goal is to offer immediately practical ideas, information and bigger-picture policy issues and trends. For more information, visit www.westerncity.com. “Rosenberg’s Rules of Order” first appeared in Western City magazine in August and September 2003.

To order additional copies of this publication, call (916) 658-8257 or visit www.cacities.org/store. 1400 K Street, Sacramento, CA 95814 (916) 658-8200 © 2003 League of California Cities. All rights reserved. Fax (916) 658-8240 www.cacities.org Rosenberg’s Rules of Order: Simple Parliamentary Procedures for the 21st Century by Dave Rosenberg

he rules of procedure at meetings framework for the orderly conduct rules, because the chair, for all intents should be simple enough for most of meetings. and purposes, makes the final ruling on people to understand. Unfortunately, the rules. In fact, all decisions by the 2. Rules should be clear. Simple rules that hasn’t always been the case. Virtu- chair are final unless overruled by the lead to wider understanding and ally all clubs, associations, boards, coun- governing body itself. participation. Complex rules create cils and bodies follow a set of rules, two classes: those who understand Because the chair conducts the meeting, Robert’s Rules of Order, which are em- and participate and those who do it is common courtesy for the chair to bodied in a small but complex book. not fully understand and do not take a less active role than other mem- Virtually no one I know has actually fully participate. bers of the body in debates and discus- read this book cover to cover. sions. This does not mean that the chair 3. Rules should be user-friendly. That Worse yet, the book was written for should not participate in the debate or is, the rules must be simple enough another time and purpose. If you are discussion. On the contrary, as a mem- that citizens feel they have been able running the British Parliament, Robert’s ber of the body, the chair has full rights to participate in the process. Rules of Order is a dandy and quite use- to participate in debates, discussions ful handbook. On the other hand, if 4. Rules should enforce the will of and decision-making. The chair should, you’re running a meeting of a five- the while protecting the however, strive to be the last to speak at member body with a few members of rights of the minority. The ultimate the discussion and debate stage, and the public in attendance, a simplified purpose of the rules of procedure is should not make or second a motion version of the rules of parliamentary to encourage discussion and to facili- unless he or she is convinced that no procedure is in order. Hence, the birth tate decision-making by the body. In other member of the body will do so. of “Rosenberg’s Rules of Order.” a democracy, the majority rules. The rules must enable the majority to This publication covers the rules of The Basic Format for an express itself and fashion a result, parliamentary procedure based on my Item Discussion while permitting the minority to also 20 years of experience chairing meetings Formal meetings normally have a written, express itself (but not dominate) and in state and local government. These published agenda; informal meetings fully participate in the process. rules have been simplified and slimmed may have only an oral or understood down for 21st century meetings, yet agenda. In either case, the meeting is they retain the basic tenets of order to The Should Take a governed by the agenda and the agenda which we are accustomed. Back Seat During Discussions constitutes the body’s agreed-upon road While all members of the governing map for the meeting. And each agenda “Rosenberg’s Rules of Order” are sup- body should know and understand the item can be handled by the chair in the ported by the following four principles: rules of parliamentary procedure, it is following basic format. 1. Rules should establish order. The the chairperson (chair) who is charged First, the chair should clearly announce first purpose of the rules of parlia- with applying the rules of conduct. the agenda item number and should mentary procedure is to establish a The chair should be well versed in those clearly state what the subject is. The chair should then announce the format that will be followed. There are exceptions to the general rule of free Second, following that agenda format, the chair should invite the appropriate and open debate on motions. The exceptions all people to report on the item, including apply when there is a desire to move on. any recommendation they might have. The appropriate person may be the chair, a member of the governing body,

www.cacities.org 1 Rosenberg’s Rules of Order: Simple Parliamentary Procedure for the 21st Century

a staff person, or a chair Eighth, the chair should now invite dis- Motions are made in a simple two-step charged with providing information cussion of the motion by the members process. First, the chair recognizes the about the agenda item. of the governing body. If there is no member. Second, the member makes a desired discussion or the discussion has motion by preceding the member’s Third, the chair should ask members ended, the chair should announce that desired approach with the words: “I of the body if they have any technical the body will vote on the motion. If move …” A typical motion might be: questions for clarification. At this point, there has been no discussion or a very “I move that we give 10 days’ notice in members of the governing body may ask brief discussion, the vote should proceed the future for all our meetings.” clarifying questions to the people who immediately, and there is no need to re- reported on the item, and they should The chair usually initiates the motion by: peat the motion. If there has been sub- be given time to respond. stantial discussion, it is normally best to 1. Inviting the members to make a Fourth, the chair should invite public make sure everyone understands the motion: “A motion at this time comments or, if appropriate at a formal motion by repeating it. would be in order.” meeting, open the meeting to public input. If numerous members of the pub- lic indicate a desire to speak to the sub- ject, the chair may limit the time of each Debate on policy is healthy; debate on personalities public . At the conclusion of the public comments, the chair should ann- is not. The chair has the right to cut off discussion ounce that public input has concluded that is too personal, too loud or too crude. (or that the public hearing, as the case may be, is closed).

Fifth, the chair should invite a motion Ninth, the chair takes a vote. Simply 2. Suggesting a motion to the members: from the governing body members. The asking for the “ayes” and then the “nays” “A motion would be in order that we chair should announce the name of the is normally sufficient. If members of the give 10-days’ notice in the future for member who makes the motion. body do not vote, then they “abstain.” all our meetings.” Unless the rules of the body provide Sixth, the chair should determine if any 3. Making the motion. member of the body wishes to second otherwise or unless a super-majority is the motion. The chair should announce required (as delineated later in these As noted, the chair has every right as a the name of the member who seconds rules), a simple majority determines member of the body to make a motion, the motion. It is normally good practice whether the motion passes or is defeated. but normally should do so only if he or she wishes a motion to be made but no for a motion to require a second before Tenth, the chair should announce the other member seems willing to do so. proceeding with it, to ensure that it is result of the vote and should announce not just one member of the body who what action (if any) the body has taken. is interested in a particular approach. In announcing the result, the chair The Three Basic Motions However, a second is not an absolute should indicate the names of the mem- Three motions are the most common: requirement, and the chair can proceed bers, if any, who voted in the minority 1. The basic motion. The basic motion with consideration and a vote on the on the motion. This announcement is the one that puts forward a deci- motion even when there is no second. might take the following form: “The sion for consideration. A basic mot- This is a matter left to the discretion motion passes by a vote of 3-2, with ion might be: “I move that we create of the chair. Smith and Jones dissenting. We have a five-member committee to plan Seventh, if the motion is made and sec- passed the motion requiring 10 days’ and put on our annual fundraiser.” onded, the chair should make sure every- notice for all future meetings of this one understands the motion. This is governing body.” 2. The motion to . If a member done in one of three ways: wants to change a basic motion that Motions in General is under discussion, he or she would 1. The chair can ask the maker of the move to amend it. A motion to motion to repeat it; Motions are the vehicles for decision- amend might be: “I move that we making. It is usually best to have a mot- 2. The chair can repeat the motion; or amend the motion to have a 10- ion before the governing body prior to member committee.” A motion to 3. The chair can ask the secretary discussing an agenda item, to help every- amend takes the basic motion that is or the clerk of the body to repeat one focus on the motion before them. before the body and seeks to change the motion. it in some way.

2 League of California Cities Rosenberg’s Rules of Order: Simple Parliamentary Procedure for the 21st Century

3. The substitute motion. If a member First, the chair would deal with the To Debate or Not to Debate wants to completely do away with third (the last) motion on the floor, the The basic rule of motions is that they the basic motion under discussion substitute motion. After discussion and are subject to discussion and debate. and put a new motion before the debate, a vote would be taken first on Accordingly, basic motions, motions to governing body, he or she would the third motion. If the substitute amend, and substitute motions are all “move a substitute motion.” A substi- motion passes, it would be a substitute eligible, each in their turn, for full dis- tute motion might be: “I move a sub- for the basic motion and would elimi- cussion before and by the body. The stitute motion that we cancel the nate it. The first motion would be moot, debate can continue as long as members annual fundraiser this year.” as would the second motion (which of the body wish to discuss an item, sub- sought to amend the first motion), and Motions to amend and substitute mo- ject to the decision of the chair that it is the action on the agenda item would be tions are often confused. But they are time to move on and take action. complete. No vote would be taken on quite different, and so is their effect, the first or second motions. On the There are exceptions to the general rule if passed. other hand, if the substitute motion (the of free and open debate on motions. The A motion to amend seeks to retain the third motion) failed, the chair would exceptions all apply when there is a basic motion on the floor, but to modify proceed to consideration of the second desire of the body to move on. The fol- it in some way. (now the last) motion on the floor, the lowing motions are not debatable (that motion to amend. is, when the following motions are made A substitute motion seeks to throw out and seconded, the chair must immedi- the basic motion on the floor and substi- If the substitute motion failed, the ately call for a vote of the body without tute a new and different motion for it. chair would then deal with the second debate on the motion): (now the last) motion on the floor, The decision as to whether a motion is the motion to amend. The discussion A motion to adjourn. This motion, if really a motion to amend or a substitute and debate would focus strictly on the passed, requires the body to immediately motion is left to the chair. So that if a amendment (should the committee be adjourn to its next regularly scheduled member makes what that member calls a five or 10 members). If the motion to meeting. This motion requires a simple motion to amend, but the chair deter- amend passed, the chair would now majority vote. mines it is really a substitute motion, the move to consider the main motion (the chair’s designation governs. A motion to . This motion, if first motion) as amended. If the motion passed, requires the body to immediately to amend failed, the chair would now take a recess. Normally, the chair deter- When Multiple Motions Are Before move to consider the main motion The Governing Body mines the length of the recess, which (the first motion) in its original format, may range from a few to an Up to three motions may be on the floor not amended. hour. It requires a simple majority vote. simultaneously. The chair may reject a fourth motion until the three that are on the floor have been resolved. When two or three motions are on the The challenge for anyone chairing a public meet- floor (after motions and seconds) at ing is to accommodate public input in a timely the same time, the first vote should be on the last motion made. So, for exam- and time-sensitive way, while maintaining steady ple, assume the first motion is a basic “motion to have a five-member commit- progress through the agenda items. tee to plan and put on our annual fund- raiser.” During the discussion of this motion, a member might make a second Third, the chair would now deal with A motion to fix the time to adjourn. motion to “amend the main motion to the first motion that was placed on the This motion, if passed, requires the body have a 10-member committee, not a floor. The original motion would either to adjourn the meeting at the specific five-member committee, to plan and be in its original format (five-member time set in the motion. For example, the put on our annual fundraiser.” And per- committee) or, if amended, would be in motion might be: “I move we adjourn haps, during that discussion, a member its amended format (10-member com- this meeting at midnight.” It requires a makes yet a third motion as a “substitute mittee). And the question on the floor simple majority vote. motion that we not have an annual for discussion and decision would be A motion to table. This motion, if fundraiser this year.” The proper proce- whether a committee should plan and passed, requires discussion of the agenda dure would be as follows. put on the annual fundraiser. item to be halted and the agenda item to

www.cacities.org 3 Rosenberg’s Rules of Order: Simple Parliamentary Procedure for the 21st Century

be placed on “hold.” The motion may the motion fails. If one member is ab- pend the rules for a particular purpose. contain a specific time in which the sent and the vote is 3-3, the motion For example, the body (a private club) item can come back to the body: “I still fails. might have a rule prohibiting the atten- move we table this item until our regu- dance at meetings by non-club mem- All motions require a simple majority, lar meeting in October.” Or the motion bers. A motion to suspend the rules but there are a few exceptions. The may contain no specific time for the would be in order to allow a non-club exceptions occur when the body is return of the item, in which case a member to attend a meeting of the club taking an action that effectively cuts motion to take the item off the table on a particular date or on a particular off the ability of a minority of the body and bring it back to the body will have agenda item. to take an action or discuss an item. to be taken at a future meeting. A These extraordinary motions require a motion to table an item (or to bring it two-thirds majority (a super-majority) The Motion to Reconsider back to the body) requires a simple to pass: There is a special and unique motion majority vote. that requires a bit of explanation all by Motion to limit debate. Whether a A motion to limit debate. The most itself: the motion to reconsider. A tenet member says, “I move the previous common form of this motion is to say: of parliamentary procedure is finality. question,” “I move the question,” “I “I move the ” or “I After vigorous discussion, debate and call for the question” or “I move to limit move the question” or “I call for the a vote, there must be some closure to debate,” it all amounts to an attempt to question.” When a member of the body the issue. And so, after a vote is taken, cut off the ability of the minority to dis- makes such a motion, the member is the matter is deemed closed, subject cuss an item, and it requires a two-thirds really saying: “I’ve had enough debate. only to reopening if a proper motion vote to pass. Let’s get on with the vote.” When such to reconsider is made. a motion is made, the chair should ask Motion to close . When A motion to reconsider requires a for a second to the motion, stop debate, choosing officers of the body, such as the majority vote to pass, but there are and vote on the motion to limit debate. chair, nominations are in order either two special rules that apply only to The motion to limit debate requires a from a nominating committee or from the motion to reconsider. two-thirds vote of the body. Note that a the floor of the body. A motion to close motion to limit debate could include a nominations effectively cuts off the right First is the matter of timing. A motion time limit. For example: “I move we of the minority to nominate officers, to reconsider must be made at the meet- limit debate on this agenda item to and it requires a two-thirds vote ing where the item was first voted upon 15 minutes.” Even in this format, the to pass. or at the very next meeting of the body. A motion to reconsider made at a later time is untimely. (The body, however, can always vote to suspend the rules If you are running the British Parliament, and, by a two-thirds majority, allow a is a dandy and quite motion to reconsider to be made at Robert’s Rules of Order another time.) useful handbook. Second, a motion to reconsider may be made only by certain members of the body. Accordingly, a motion to recon- motion to limit debate requires a two- Motion to object to the consideration sider may be made only by a member thirds vote of the body. A similar mot- of a question. Normally, such a motion who voted in the majority on the origi- ion is a motion to object to consideration is unnecessary, because the objectionable nal motion. If such a member has a of an item. This motion is not debatable, item can be tabled or defeated straight change of heart, he or she may make the and if passed, precludes the body from up. However, when members of a body motion to reconsider (any other mem- even considering an item on the agenda. do not even want an item on the agenda ber of the body may second the motion). It also requires a two-thirds vote. to be considered, then such a motion If a member who voted in the minority is in order. It is not debatable, and it seeks to make the motion to reconsider, Majority and Super-Majority Votes requires a two-thirds vote to pass. it must be ruled out of order. The pur- pose of this rule is finality. If a member In a democracy, decisions are made with Motion to suspend the rules. This of the minority could make a motion to a simple majority vote. A tie vote means motion is debatable, but requires a two- reconsider, then the item could be the motion fails. So in a seven-member thirds vote to pass. If the body has its brought back to the body again and body, a vote of 4-3 passes the motion. A own rules of order, conduct or proce- again, which would defeat the purpose vote of 3-3 with one abstention means dure, this motion allows the body to sus- of finality.

4 League of California Cities Rosenberg’s Rules of Order: Simple Parliamentary Procedure for the 21st Century

If the motion to reconsider passes, then the original matter is back before the body, and a new original motion is in It is usually best to have a motion before the gov- order. The matter may be discussed and debated as if it were on the floor for the erning body prior to discussing an agenda item, first time. to help everyone focus.

Courtesy and Decorum

The rules of order are meant to create lege relate to anything that would inter- Withdraw a motion. During debate an atmosphere where the members of fere with the normal comfort of the and discussion of a motion, the maker the body and the members of the public meeting. For example, the room may of the motion on the floor, at any time, can attend to business efficiently, fairly be too hot or too cold, or a blowing may interrupt a speaker to withdraw and with full participation. And at the fan might interfere with a person’s his or her motion from the floor. The same time, it is up to the chair and the ability to hear. motion is immediately deemed with- members of the body to maintain com- drawn, although the chair may ask the Order. The proper interruption would mon courtesy and decorum. Unless the person who seconded the motion if be: “Point of order.” Again, the chair setting is very informal, it is always best he or she wishes to make the motion, would ask the interrupter to “state your for only one person at a time to have and any other member may make the point.” Appropriate points of order the floor, and it is always best for every motion if properly recognized.

Special Notes About Public Input Motions to amend and substitute motions are The rules outlined here help make meet- ings very public-friendly. But in addi- often confused. But they are quite different, and tion, and particularly for the chair, it is so is their effect, if passed. wise to remember three special rules that apply to each agenda item: Rule One: Tell the public what the body will be doing. speaker to be first recognized by the relate to anything that would not be chair before proceeding to speak. considered appropriate conduct of the Rule Two: Keep the public informed meeting; for example, if the chair moved while the body is doing it. The chair should always ensure that on to a vote on a motion that permits debate and discussion of an agenda item Rule Three: When the body has acted, debate without allowing that discussion focus on the item and the policy in ques- tell the public what the body did. or debate. tion, not on the personalities of the Public input is essential to a healthy members of the body. Debate on policy . If the chair makes a ruling that democracy, and community participa- is healthy; debate on personalities is not. a member of the body disagrees with, tion in public meetings is an important The chair has the right to cut off discus- that member may appeal the ruling of element of that input. The challenge for sion that is too personal, too loud or the chair. If the motion is seconded and anyone chairing a public meeting is to too crude. after debate, if it passes by a simple accommodate public input in a timely majority vote, then the ruling of the Debate and discussion should be fo- and time-sensitive way, while maintain- chair is deemed reversed. cused, but free and open. In the interest ing steady progress through the agenda of time, the chair may, however, limit Call for orders of the day. This is sim- items. The rules presented here for con- the time allotted to speakers, including ply another way of saying, “Let’s return ducting a meeting are offered as tools for members of the body. Can a member of to the agenda.” If a member believes that effective leadership and as a means of the body interrupt the speaker? The the body has drifted from the agreed- developing sound public policy. ■ general rule is no. There are, however, upon agenda, such a call may be made. exceptions. A speaker may be interrupt- It does not require a vote, and when the ed for the following reasons: chair discovers that the agenda has not been followed, the chair simply reminds Privilege. The proper interruption the body to return to the agenda item would be: “Point of privilege.” The chair properly before them. If the chair fails would then ask the interrupter to “state to do so, the chair’s determination may your point.” Appropriate points of privi- be appealed.

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