Student Congress

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alsitcvarl coricvarl If the crux of debate is building arguments and responding to the opposition, and if the purpose of persuasive speaking is to eloquently convince and motivate an audience, and if the aim of role-playing is to understand the persona and motivation of a character within the setting and context of a given situation; then Student Congress (also called Congressional Debate) combines these elements under the real-life structure of a model legislature, employing parliamentary procedure.

Student Congress is a mock legislative assembly competition offered in the National Forensic League and the National Catholic Forensic League, along with most state and local leagues. In Student Congress, students draft bills (proposed laws) and resolutions (position statements), which they and their peers later debate and vote to pass into law. While coaches aren’t always required to submit legislation to meets, it gives their students the right to an authorship speech, introducing the bill or resolution to the chamber. In advance of the meet, a docket of submitted titles or full legislative text are distributed to participating schools, so students may research and prepare themselves for the debate. Many meets allow students to caucus in committee(s) to determine the agenda, wherein they strive to select topics that will yield even and engaging debate, as well as balancing authorship privileges among the schools participating in the chamber.


Contents

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Terminology

  • Chair - the leader of a legislative assembly who runs its meetings by recognizing members to speak or move. Also called the “presiding officer,” or “P.O.” You normally address the chair as "Mr. Speaker" Modeled after the Speaker of the House, or the Vice President or President pro tempore of the Senate.
  • Floor - when a member has the full attention of the assembly to speak (also refers to the area where the assembly meets, where its members speak, and where it conducts its business).
  • Committee - a small group of members who meet and bring recommendations to the full assembly.
  • Legislation - a specific, written proposal (in the form of a “bill” or “resolution”) made by a member or committee for assembly to debate.
  • Amendment - a specific change to an item of legislation, explaining exactly which words it modifies, and not changing the intent of the legislation itself.
  • Bill - type of legislation that describes the details of how a policy would be enacted, if voted into law by the assembly.
  • Resolution - an expression of conviction, or value belief of an assembly, which may urge, request or suggest further action by another decision-making authority.
  • Docket - the complete packet of legislation (as titles or full text) distributed by a tournament.
  • Agenda - the order of legislation as suggested by a committee or member, and voted on by the assembly (sometimes called the “calendar”)
  • Authorship Speech - a constructive speech of up to three (3) minutes given by a member, which introduces an item of legislation for debate by the chamber. It is called a sponsorship speech if given by a student who is not affiliated with the school the legislation originated from. All authorship speeches are followed by a two-minute cross-examination period.
  • Cross-examination - period where the members of the assembly ask individual questions of the speaker. Multiple-part (or two-part) questions are not allowed (unless the rules are suspended for that instance), because they take time from other members who may wish to question the speaker.

For all speeches that follow an authorship, the speaker has up to three (3) minutes to speak, and time left over is used for cross-examination. All affirmative and negative speeches that follow an authorship speech should introduce new ideas (arguments) and respond to previous arguments (refute or rebut).

  • Precedence - standard rule in most leagues (including NFL and NCFL), which requires the presiding officer to choose speakers who have spoken least (or not at all).
  • Recency - widely-used system (but not a rule), where the presiding officer not only employs precedence, but also selects speakers based on who has spoken least recently (or earlier).
  • Geography - before precedence is established, this method is employed to balance recognition of speakers among various spatial zones in the chamber, so students seated in any given area aren’t disadvantaged. The chair should ensure that an equal number of affirmative and negative speeches are called from the same zone. Geography is just one approach to recognizing speakers.
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Structure of a Congress

The following admonitions are based on NFL rules, with a healthy dose of common sense based on Robert's Rules of Order and practical experience.

  • A congress begins by setting the agenda, using the docket of legislation, by either (a) convening a committee with representatives from each school to draft the order of business; (b) convening a series of committees based on issues (whereby all members of a chamber serve on a committee) to set the legislative calendar; or (c) nominating and voting on proposed agendas prepared in advance.
  • After the agenda is set, election of the presiding officer by a single ballot (majority) takes place.
  • Time is of the essence in an assembly, and the ultimate goal of the congress will be to share time equally among legislators for speaking. The more time spent on parliamentary motions, amending, etc.; the less time is available for speeches. Setting the agenda at the beginning of the session is important. Try to avoid changing this valuable work by tabling items once the session has begun. This may slightly anger your judges/scorers and parliamentarian. Also, do not use “tabling” as a shortcut to calling to question. Remember, calling the question is a special motion that gives a voice to the minority prior to when the vote will rest on the majority.
  • Do not yield your remaining speaking time to another legislator. The elected presiding officer may not give a speech while presiding.
  • As each piece of legislation is introduced, there is a three-minute uninterrupted authorship/sponsorship speech, after which, there is a two-minute mandatory CX period. In the NFL, there is a mandatory one minute of CX after each and every speech following the authorship/sponsorship. The CX cannot be removed by suspending the rules.
  • If affirmative and negative speakers do not exhaust their entire three minutes, the remaining time becomes a cross-examination period. The speaker may refuse to be cross-examined (by not yielding) but this is inadvisable.
  • Only the presiding officer recognizes legislators who wish to question the speaker. Suspending rules to allow for direct questioning is not recommended. Legislators may only ask one question at a time; two-part questions are not allowed, and suspending rules to allow for them is also frowned upon (because that allows one questioner to dominate the cross-examination time, taking away questions from other legislators).
  • Legislators stand if they wish to be recognized to make a motion, to speak, or to vote on the main motion. Votes on most other motions are usually taken by voice vote, with a “Division” called by a member when the vote is not clear and that member believes someone’s right to speak is being abridged.
  • Be respectful of the presiding officer and adults in the room. If the presiding officer makes a minor mistake, give him/her the benefit of the doubt unless someone has been wronged. The P.O. is elected by the chamber to run the meeting and should be allowed to fulfill this duty efficiently and effectively.
  • Voting results for a simple majority decision are based upon the number voting; not the number seated in the chamber at the beginning of the session. When debate has exhausted and no one wishes to speak (or the chamber moves to end debate), the chamber will vote on the item.
  • Amendments must be submitted to the parliamentarian in writing, who will assess its relevance (germane) and render that decision to the P.O. After the current speech and questioning period, the amending legislator will rise and “move to amend.” Once the motion to amend is recognized, the P.O. will call for a 1/3 second. Upon receiving that tally, an immediate motion may be made to call to question, or the P.O. may call for speeches in affirmation of the amendment (the amending legislator is not guaranteed this privilege).
  • Standard (NFL) Gaveling Procedure for speeches
    • 1 tap = 1 minute remaining
    • 2 taps = 30 seconds remaining
    • 3 taps = time is out
    • Multiple taps (until speaker stops talking) = grace period has ended (should not exceed 10 seconds past the three-minute speech)
    • 1 strong tap = end questioning time (the presiding officer may also gesture a cue to questioners to be seated as the speaker finishes answering the final question)

Common Phrases (what to say when you want to...)

  • Make a motion -- “I move that (or to)…”
  • Leave the room (toilet, etc.) -- “Point of Personal Privilege”
  • Make an amendment (see “Amendments” above) -- “Move to amend.”
  • Close debate on the current issue -- “I move to call to previous question.”
  • Ask about an error -- “Motion! Parliamentary inquiry. …”
  • Second a motion -- “Second!”
  • To table -- “I move to lay on the table.”
  • To take from the table -- “I move to take from the table…”
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Legislation

If the purpose of legislation is to effect some type of change in the status quo, then ideas should stem from a desire to solve problems or meet needs. The best legislation in Student Congress is debatable, meaning there is some degree of controversy in either the topic or how the legislation intends to addresses the issue(s).

  • Structure – Legislation should be typed and double-spaced with line numbers, not exceeding one page. Capitalizing the words “WHEREAS” and “RESOLVED” in resolutions, and “SECTION” in bills, as well as inverse-indenting each clause or section helps to distinguish between ideas and concepts. Conventions for written structure of legislation differ in various leagues and regions. The suggestions herein are based on a synthesis of the various formats, as well as format used by the U.S. Congress (see http://thomas.loc.gov). Please use specific titles that preview and illuminate the purpose of the legislation.
  1. Resolutions: Think “R” for reasons or rationale. Resolutions encourage, and when passed, establish a strong conviction by a lawmaking body to do something. Any time a lawmaking body wants to take further and "higher" action (i.e., amend the Constitution, engage in a treaty, take action through the UN or some other multinational group), a resolution is the means by which this is done. Resolutions never establish the "how" of law, i.e., issues of enforcement, and how it will work when passed.
  2. Bills - A bill, when passed into law, has the full power of enforcement behind it. Therefore, a bill establishes the details and nuances behind how a particular law must work, including when it takes effect, how much of the treasury (tax levy) will be appropriated (if applicable), how infractions/violations will be dealt with, etc. A bill may answer the who, what, when, where – and most specifically how – but it will never answer “why.” Legislators must explain the rationale behind bills in their speeches.
  • Sample Resolution Format – Note the semicolon, and how it precedes the word “and” at the end of each “whereas” clause, and the phrase “now, therefore, be it” at the end of the last “whereas” clause. 
  A RESOLUTION TO SOLVE A PARTICULAR PROBLEM

1    WHEREAS,  State the current problem (this 

2              needs to be accomplished in one 

3              brief sentence); and

4    WHEREAS,  Describe the scope of the problem 

5              cited in the first whereas clause  

6              (this clause needs to flow 

7              logically from the first); and

8    WHEREAS,  Explain the impact and harms 

9              perpetuated by the current problem

10             (once again, the clause needs to flow

11             in a logical sequence); now, therefore,

12             be it

13   RESOLVED, By the Student Congress here assembled

14             that, state your recommendation for 

15             dealing with the problem (the resolution

16             should be a clear call for action); and, be it

17   FURTHER RESOLVED, That (this is an optional additional 

18             recommendation; if not used, end the previous

19             “resolved” clause with a period). 
  
                                    Respectfully submitted,

                                    Name of School
  • Sample Bill Format 
              A BILL TO ESTABLISH A PARTICULAR POLICY

1    BE IT ENACTED BY THE STUDENT CONGRESS HERE ASSEMBLED THAT:

2    SECTION 1.  State the new policy in a brief declarative 

3                sentence, or in as few sentences as possible.

4    SECTION 2.  Define any ambiguous terms inherent in the first 

5                section.

6    SECTION 3.  Name the government agency that will oversee the
    
7                enforcement of the bill along with the specific 
                
8                enforcement mechanism.

9    SECTION 4.  Indicate the implementation date/timeframe.

10   SECTION 5.  State that all other laws that are in conflict 
     
11               with this new policy shall hereby be declared 
                 
12               null and void. 

                                          Respectfully submitted,

                                          Name of School
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Forms of Competition

There are many methods of determining who earns a trophy or gavel as the “Best Legislator/Speaker,” or “Best Presiding Officer.” These methods vary in their degree by tournament of including adult judge scores and nominations and student voting. The most common method is where judges either nominate students, or the cumulative point totals they award students determines who advances. Students then cast a preferential ballot ranking the nominated debaters in order of preference, which is intended to be in order of best performance.

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Regional/State Differences

Unlike Extemp or Oratory, which tend to be consistent from state to state, Congress often reflects the unique evolution it has taken as an event that transcends mere public speaking or standard debate. Therefore, particular states often have their own structural differences, particularly where it comes to the competition framework. Unfortunately, sometimes that translates to a misinterpretation of parliamentary procedure, which ideally should be standardized to allow students to adapt easily from one style of Congress to another. The standards and descriptions contained in this article are based on NFL procedures (the organization that founded Student Congress), and truly are the most compatible across the board (because they are based fairly closely on Robert's Rules of Order).


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External Links

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