Filibusters and Cloture in the Senate

Publication Date: March 2003

Publisher: Library of Congress. Congressional Research Service

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Research Area: Government

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Abstract:

The right of Senators to speak on the floor at great length—and so to filibuster—is the single most defining characteristic of the Senate as a legislative body. The possibility of filibusters derives from the absence of any effective Senate rules that limit the number or length of floor speeches. The Senate's rules provide that, in most cases, a Senator who seeks recognition has a right to the floor if no other Senator is speaking, and that Senator then may speak for as long as he or she wishes. There is no motion by which a simple majority of the Senate can stop a debate and allow the Senate to vote in favor of an amendment, a bill or resolution, or any other debatable question. Almost every bill actually is subject to two potential filibusters before the Senate votes on whether to pass it: first, a filibuster on a motion to proceed to the bill's consideration; and second, after the Senate agrees to this motion, a filibuster on the bill itself.

Senate Rule XXII enables Senators to end a filibuster by invoking cloture on whatever debatable matter it is considering. Sixteen Senators initiate this process by presenting a motion to end the debate. The Senate does not vote on this cloture motion until the second day after the day on which the motion is made. Then it usually requires the votes of at least three-fifths of all Senators, or at least 60 votes, to invoke cloture. Invoking cloture on a proposal to amend the Senate's standing rules requires the support of two-thirds of the Senators present and voting. The primary effect of invoking cloture on a question is to impose a maximum of 30 additional hours for considering that question. This 30-hour period for consideration encompasses all time consumed by rollcall votes, quorum calls, and other actions, as well as the time used for debate. During this 30-hour period, each Senator may speak for no more than one hour apiece (although several Senators can have additional time yielded to them). Under cloture, the only amendments that Senators can offer are amendments that are germane and that were submitted in writing before the cloture vote took place. The presiding officer also enjoys certain additional powers under cloture: for example, to count to determine whether a quorum is present, and to rule amendments, motions, and other actions out of order on the grounds that they are dilatory.

The ability of Senators to engage in filibusters has a profound and pervasive effect on how the Senate conducts its business on the floor. In the face of a threatened filibuster, for example, the majority leader may decide not to call a bill up for floor consideration, or to defer calling it up if there are other, equally important bills that the Senate can consider and pass without undue delay. Similarly, the prospect of a filibuster can persuade a bill's proponents to accept changes in the bill that they do not support but that are necessary to prevent the threat of a filibuster from becoming a reality.

In January 2001, the Senate agreed to S.Res. 8, adjusting the Senate's organization and procedures during the 107th Congress. Discussions of pertinent provisions of this resolution appear in italics.