Garry Gamber asked:


The filibuster has been a tool available to U.S. Senators during Senate floor discussions on legislation and appointments since the U.S. Constitution was ratified. Both the Democratic and Republican parties have valued the filibuster as a means to bring compromise and bipartisanship to bitter and divisive debates.

The word, filibuster, as it applies to the American political process refers to a political delaying tactic such as a long speech used by politicians to delay or prevent the passage of legislation. The older meaning of filibuster refers to the illegal act of plundering or piracy; of capturing a ship and its cargo and holding it for ransom.

The etymology of the word, filibuster, seems to date back to about 1560-1570 when the English anglicized the Dutch word, vrijbutier, into freebooter. A freebooter is understood to be a person who goes in search of plunder; a pirate, a buccaneer. Shortly thereafter, the French adopted filibustier and the Spanish adopted filibustero to mean the same thing. In the 17th century the English transformed the Spanish word into filibuster to describe the actions of the pirates who attacked the Spanish explorers of the New World. In the 1800’s the Americans popularized the word filibuster, referring to the activities of famous pirates operating in Latin America and the Caribbean.

Filibuster as Piracy

From 1830 to 1860 the countries of Cuba, Mexico, Honduras, Costa Rica, and Nicaragua were all victims of various filibuster campaigns. The filibusters were led by groups of adventurers who, without the consent of the American Government, but with the aid of private American finance, tried to seize political power in these Latin American and Caribbean countries. Part of the aim of the filibuster campaigns was to empower the population of these countries and bring forth a revolution that would be beneficial to American interests, mainly the slave trade.

Financial support for the filibusters came largely from the southern states where parades of celebration were held in their honor and songs were written about their adventures. Officially, the U.S. did not support the filibuster campaigns because the military was spread too thin to be able to provide adequate enforcement of the laws against the involvement. Many citizens saw the campaigns as an aspect of “manifest destiny,” the idea that America had a right to unlimited expansion.

A couple of famous filibusterers include Narciso Lopez and William Walker. Lopez liberated Venezuela from Spanish rule and attempted three times to liberate Cuba. Walker, from Tennessee, annexed parts of Mexico, including Lower California, and declared himself to be president. The U.S. government did not support Walker and eventually brought him to trial.

The era of the Filibuster Movement ended when the U.S. Civil War started. Attention and resources were given to the defense of the North and the South, ending the efforts of the filibuster campaigns.

Filibuster as a Political Tool

During the period from 1840 to 1860, numerous Southern politicians made long speeches during Senate floor debates on legislation bills for the purpose of delaying the bill or preventing a vote on the bill. The word filibuster was borrowed to describe these speeches, which were thought of as piracy of time and opportunity. Henry Clay, in 1841, gave what is considered to be the first filibuster speech.

As the debate over the slavery issue became more important in Congress, southern politicians used the tactic of long dilatory speeches to block all civil rights legislation. The word filibuster became popularized during this pre-Civil War period.

Legislative Rules

The U.S. Constitution did not give direction to the House of Representatives or to the Senate regarding how to conduct everyday business and how to conduct debates on the floor. Each body was expected to create and adopt their own rules.

On day 2 of the first Senate meeting a special committee was created to “prepare a system of rules for conducting business.” A few days later, on April 7, 1789, the special committee filed their first rules report and on April 16, 1789, the Senate adopted their first set of rules. The first set contained 19 rules and on April 18 number 20 was adopted. At this point the special committee was disbanded.

The rules committee was recreated on several occasions during succeeding years for the purpose of creating new rules or revising existing rules. Since 1789 there have been 7 adoptions of new or revised rules; in 1806, 1820, 1828, 1877, 1884, and 1979. Some rules have been amended and passed by the Senate without going to a committee. The change to Rule XXII in 1917 to provide for a cloture procedure is a good example. There currently are a total of 43 Standing Rules of the Senate.

The House Rules and Manual of the U.S. House of Representatives does not allow for filibuster speeches. Each Representative is allowed to hold the floor to debate a question for one hour and may only speak once on each question. The House is a large body and the members thought it wise to limit the amount of time that a Representative may speak.

The Senate is an entirely different situation, however.

Senate Rule XIX

Rule XIX is the key rule that provides a structure for debate on the Senate floor. A key provision of the rule states that when a Senator rises to seek recognition during floor debate, he or she is guaranteed a chance to speak on the question for as long as he or she wishes. The presiding officer is not given discretion in this matter and must recognize each Senator in order. During the period of time that a recognized Senator is speaking the question before the Senate cannot come to a vote. The Senator cannot be interrupted or be forced to stop their speech without their consent.

Debate Rule XIX does not limit the number of Senators who may speak on an issue. The rule does, however, limit each Senator to two speeches per legislative day on each issue. During a filibuster period the presiding officer will typically call a recess rather than an adjournment at the end of the calendar day, keeping the legislative day alive when the Senate reconvenes. This tactic effectively limits each Senator to a maximum of two speeches on each issue. It is possible, however, for a Senator to offer an amendment in order to create a new debatable question, on which the Senators may make two more speeches.

A relatively recent provision in Rule XIX, called the “Pastore Rule” in honor of Senator John Pastore of Rhode Island, requires that debate on a question must be germane to the question. During filibuster periods this rule is enforced to prevent Senators from making meaningless, off-topic speeches. During the 1930’s through the 1950’s several Senators, such as Huey Long and Strom Thurmond made long filibusters which included readings of recipes, the Congressional Record, the Declaration of Independence, and other non-germane topics.

While a Senator is speaking on an issue he or she must remain standing and must speak more or less continuously. During a filibuster-length speech this requirement creates fatigue in the speaker. However, the speaker may yield to a question from another Senator without losing the floor. The other Senator can provide relief by asking a very long question followed by a short answer, followed by more long questions. In this manner a group of Senators can work together to extend the length of a Senator’s speaking period.

Senate Rule XXII

The procedures for invoking cloture for purposes of wrapping up the floor debate and bringing the question to a vote are contained in Rule XXII. The process requires a motion that is signed by at least 16 Senators and presented to the presiding officer while the question is being debated. The rule requires that the cloture motion must be seasoned, meaning that it cannot be acted upon until the second day after it is presented.

One hour after the cloture motion has matured on the third day the presiding officer interrupts the Senate proceedings and presents the cloture motion to the Senate for a vote. At this point an automatic roll call vote is required.

In 1975 the Senate voted to change the number of votes needed to invoke cloture to 60% from the previous 67%. A compromise was struck, however, because some Senators feared that if changing the Rule was too easy that the majority needed to invoke cloture might be reduced further in the future. Therefore, the Senate agreed that to make future rule changes, including changing the cloture rule itself, would require the traditional 67% majority vote.

If the motion to invoke cloture is defeated the Senators can reconsider the vote or file a new motion to invoke cloture. For example, in 1988 there were eight cloture motions on a campaign finance reform bill and all eight motions were defeated.

If a motion to invoke cloture is successful, then the effect of invoking cloture only guarantees that a vote on the question will take place eventually, but not immediately. After the successful cloture motion has passed the Senate is said to be working under cloture. Rule XXII imposes a maximum cap of 30 additional hours for debate, quorum calls, parliamentary inquiries, and other proceedings prior to an actual vote on the question. During this cloture period each Senator is entitled to speak for a total of not more than one hour.

Once cloture has been invoked under Rule XXII, the point of a filibuster is largely lost. Without exception, proceedings are wrapped up in less than 30 hours and the question is brought to a vote.

Conclusion

The filibuster speech in the Senate has enjoyed a long tradition and has been used for several purposes. On one hand the filibuster has been used to persuade others of the validity of the minority position on a question. Open and unlimited debate can change minds and sway opinion. The filibuster speech process may help to defeat an issue once a vote is taken.

On the other hand, the filibuster has been used to stall or prevent a vote on an issue. The filibuster speech or the threat of a filibuster may cause the issue to be tabled or withdrawn and not brought to a vote on the floor.

The minority party in the Senate counts on the use of the filibuster as a means to prevent the majority party from wielding too much influence. Such a tool encourages the two major parties in the Senate to work in nonpartisan ways to resolve differences. The filibuster creates a need for compromise. It has been suggested that without the filibuster tool the Senate would be much less productive in producing legislation.

Garry Gamber asked:


The filibuster as a political delaying tactic has been a part of the American political process since the adoption of the U.S. Constitution. Though it was not used in the early years of the nation, the filibuster has been used hundreds of times since the 1840’s. Here are a few of the famous filibusters from our political history.

The U.S. Constitution does not limit the length or nature of debate on the floors of the Senate or the House of Representatives. The House has since adopted rules which limit the length of debate since the House has a very large number of Representatives. But the smaller Senate has always upheld the right of a recognized Senator to debate an issue for as long as he or she wishes to hold the floor. Senate Rule 19 and Rule 22, the cloture rule adopted in 1917, create some guidelines for conducting a debate and for closing the debate when it becomes lengthy.

Senator Henry Clay

In 1841 Senator Henry Clay proposed a bank bill that was opposed by Senator John C. Calhoun who began a lengthy, seemingly unending, rebuttal. Calhoun basically created the modern filibuster. Clay threatened to change the Senate rules in order to close debate on the issue. Clay’s colleague, Thomas Hart Benton, rebuked Clay and accused him of trying to stifle the Senate’s right to unlimited debate.

Through the next few turbulent decades and into the 1960’s the filibuster was used often by Southern Democrats to block civil rights legislation. The filibuster had been seen by the minority party as a tool to combat the potential “tyranny of the majority,” but the frequent usage of the filibuster by the Southern Democrats became characterized as the “tyranny of the minority.”

Senate Rule 22

President Woodrow Wilson suggested that some limits be placed on the unlimited debate concept. In 1917 the Senate adopted Senate Rule 22, now known as the “cloture” rule. The new Rule 22 provided the mechanism to close out debate on a legislative bill and bring the bill up for a vote if cloture was approved by 67% of the Senate. The 67% requirement remained in effect until 1975 when Rule 22 was amended to allow a 60% agreement to invoke cloture.

Cloture Rule 22 was tested in 1919 when the Senate was asked to ratify the Treaty of Versailles, which ended World War I. The treaty was debated and filibustered, but a 67% majority voted to end the filibuster and to bring the treaty to a vote.

Senator Huey Long

Senator Huey Long, the fiery and colorful senator from Louisiana, made the filibuster famous between 1932 and 1935 when he utilized it several times to stall legislation that he considered unfair to the poor. Long frustrated his opponents and entertained the Senate gallery by reading Shakespeare, reciting shrimp and oyster recipes and talking about “pot-likkers.” An amendment to Senate Rule 19 later required that debate on legislation be germane to the issue being debated.

On June 12, 1935, Senator Long engaged in his most famous filibuster. A bill was before the Senate to eliminate the provision for the Senate to confirm senior National Recovery Act employees. Senator Long opposed the bill because he didn’t want his political adversaries in Louisiana to obtain lucrative N.R.A. jobs. Senator Long spoke for 15 hours and 30 minutes running well into the evening and early morning hours with senators dozing at their desks. Long read and analyzed each section of the Constitution, a document which he claimed had become “ancient and forgotten lore” under President Roosevelt’s New Deal.

After the reading of the Constitution Senator Long offered to give advice to the remaining senators on any subject of their choosing. No senator took Long up on his offer but the gallery patrons began sending notes to the floor for Senator Long to extemporize on. That kept Long going into the early hours of the morning. At 4 a.m. Long yielded the floor in order to use the restroom and his proposal was defeated.

James Stewart brought more fame to the filibuster when he played the role of Senator Jefferson Smith in the 1939 film, “Mr. Smith Goes to Washington.” Stewart’s character launched into a filibuster in response to an attempt to ridicule him.

Senator Wayne Morse

Senator Wayne Morse from Oregon was called “The Tiger of the Senate” and served in the Senate under 5 Presidents. In 1952 Senator Morse left the Republican Party, claiming independent status, when he objected to sections of the party platform and Dwight Eisenhower’s choice of Richard Nixon as his vice presidential running mate. Senator Morse claimed that the Republican Party had left him.

On April 24, 1953, Senator Morse began to filibuster against Tidelands Oil legislation. He kept the floor for 22 hours and 26 minutes, breaking the filibuster record of 18 hours held by his mentor, Wisconsin Senator Robert La Follette.

Senator Morse is remembered through numerous colorful stories. For example, Clare Booth Luce, former U.S. Senator and Ambassador to Italy had to resign her appointment when she made the insulting but funny remark that her problems with Senator Morse began when he was kicked in the head by a horse.

Senator Strom Thurmond

About 9 p.m. on August 28, 1957, Senator Strom Thurmond rose before the Senate and announced, “Mr. President, I rise to speak against the so-called voting rights bill, H.R. 6127.” His own staff had not been informed about Senator Thurmond’s intentions to filibuster the bill, but they knew something was up when they saw Thurmond gathering considerable reading material.

Senator Thurmond had prepared himself for a long filibuster on the Senate floor. Earlier in the day he had spent time in the Senate steam room, dehydrating himself so that he would absorb all the water he drank without having to visit the restroom. His wife packed a steak sandwich lunch for him and she stayed in the family gallery throughout the night. Thurmond brought a quantity of malted milk tablets and throat lozenges from his office.

Senator Thurmond began his filibuster by reading each state’s election statutes. He later read and discussed an opinion by Chief Justice Taft. He also read and discussed the Declaration of Independence, the Bill of Rights, and Washington’s Farewell Address. His staff, concerned for Senator Thurmond’s health, was finally successful in getting him to leave the floor.

After 24 hours and 18 minutes, a record that still stands, Senator Thurmond concluded his remarks with, “I expect to vote against the bill.” The bill was defeated.

The Civil Rights Act of 1964

On June 10, 1964, Senator Robert Byrd of West Virginia finished his address begun on the previous day, slightly more than 14 hours earlier. He filibustered against the Civil Rights Act of 1964, an act which was debated by Byrd and others for 57 working days, including 6 Saturdays.

Senate President Hubert Humphrey from Minnesota needed 67 votes to be able to carry the motion for cloture. Minority Leader Senator Everett Dirksen, the always eloquent senator from Illinois procured the Republican votes necessary to pass the cloture motion. “Stronger than all the armies is an idea whose time has come,” he said. “The time has come for equality of opportunity in sharing in government, in education, and in employment. It will not be stayed or denied. It is here!”

The final roll call vote on cloture resulted in 71 votes in favor and 29 votes opposed. It was the first time in history that cloture had been invoked on civil rights legislation. The 1964 Civil Rights Act was the most sweeping of its kind in our history.

Justice Abe Fortas

In June of 1968 Chief Justice Earl Warren notified President Lyndon Johnson that he would be retiring from the Supreme Court. This move gave President Johnson time to nominate a successor since he was not planning to seek re-election as President. Johnson nominated Associate Justice Abe Fortas to replace Warren. At the same time Johnson nominated Texas Appeals Court Justice Homer Thornberry to replace Fortas, a move that was designed to satisfy southern senators.

President Johnson counted on Senators Everett Dirksen and Richard Russell for their support of the nomination. When Abe Fortas testified at his own confirmation hearing, an unprecedented occurrence, it was revealed that Fortas worked uncomfortably closely with the White House staff and the President. Later it was learned that Fortas was being paid a large sum, privately, to teach an American University summer course. At this point Dirksen, Russell, and other senators withdrew their support.

Though the committee recommended confirmation of Justice Abe Fortas, a filibuster ensued on the Senate floor to block his confirmation, the first filibuster in Senate history on a Supreme Court nomination. On October 1, 1968, the Senate was unable to tally the 67 votes needed to invoke cloture and President Johnson withdrew the nomination.

The use of the filibuster has increased from 16 filibusters in the 19th century to 66 in the first half of the 20th century to 195 in the period from 1970 to 1995. It is likely that the filibuster will continue to play an important role in the American political process.

Cathy D. Christiansen asked:


Jerry Erickson

Published: July 1, 2009

The U.S. immigration system is “broken and needs fixing.” So confirms President Obama after meeting with Republican and Democratic leaders last Thursday. Although there is no consensus yet in terms of what a restructuring of the immigration system will include, the process has now begun in earnest to adopt a comprehensive plan. President Obama acknowledged that the broken immigration system is “one of the most critical issues” that our nation faces.

In his remarks following the meeting, President Obama said: “My administration is fully behind an effort to achieve comprehensive immigration reform. I have asked my Secretary of the Department of Homeland Security, Secretary Janet Napolitano, to lead up a group that is going to be working with a leadership group from both the House and the Senate to start systematically working through these issues . . .”

One of the key issues that must be dealt with early in the immigration discussion concerns border security. At this point the American public is just not persuaded that the borders are secure. Until the borders are secured, it is unclear whether there are enough votes for the passage of comprehensive immigration reform.  Senator Mel Martinez (R-Fla.) said “I think the votes in the Senate are a little dicey at the moment. I don’t think it can pass today.” Developing an intelligent plan that clearly articulates the steps to make the border more secure will go a long way in getting the necessary votes.

President Obama is clearly aware that the road ahead will be bumpy. In his statement he said: “We all know that comprehensive immigration reform is difficult. We know it’s a sensitive and politically volatile issue. One of the things that was said around the table is the American people still don’t have enough confidence that Congress and any administration is going to get serious about border security, and so they’re concerned that any immigration reform simply will be a short-term legalization of undocumented workers with no long-term solution with respect to future flows of illegal immigration.”

It seems that the president has hit the nail on the head. In order to come up with a meaningful immigration policy that will serve our nation long-term, the government must come up with a solution to secure the borders. Assuming this can be accomplished, then the many issues associated with immigration reform can be debated.

On the eve of last week’s bipartisan meeting with the president, Senator Charles Schumer (D-N.Y.), who chairs the Senate’s main immigration subcommittee, offered that one of the ideas being considered is a requirement that all U.S. workers verify their identity through fingerprint or eye scan. As reported by The Washington Post, Schumer said that a national system to verify work authorization is necessary because Congress hasn’t cracked down hard enough on unscrupulous employers and illegal immigrants with fake documents. Schumer shows he gets the key issue when he says: “The American people will never accept immigration reform unless they truly believe their government is committed to ending future illegal immigration.” In a nutshell, that is the issue. Control the borders, and then fix the broken system.

There are approximately 12 million illegal immigrants in the U.S. Schumer expects legislation to be enacted that will secure the nation’s borders and require those here illegally to register with the government and “submit to a rigorous process to convert to legal status,” or face immediate deportation.

Done right, there is the opportunity to achieve some real long-lasting benefits here, not the least of which is the securing of our borders, having millions of non-tax paying people come out of the shadows and onto the tax rolls and developing a process to ensure that the work force is legitimate.

President Obama has conceded that “It’s going to require some heavy lifting; it’s going to require a victory of practicality and common sense and good policymaking over short term politics.” Here’s to the effort; let’s hope that all involved have the clarity and foresight to address the obvious first — securing our borders, and then the muscle to see through the remaining challenges.

 

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