PREPARING

FOR
CONGRESS
A GUIDE TO PREPARING FOR THE
JUNIOR STATE OF AMERICA'S CONGRESS CONVENTIONS

The Junior State of America invites you to attend an exciting simulation of

a Congressional session where you and other high school students become
Members of the United States Congress. You write the legislation! You vote in
committee hearings! You speak on the floor of the House or Senate! This
incredible weekend convention is entirely student-run and offers you a fantastic
learning experience!

This booklet contains all the information you need to prepare yourself and
your delegation for JSA's Congress Conventions. Instructions on assembling a
delegation and sponsoring legislation are included along with rules and
procedures specific to JSA's Congress format. Detailed instructions on how to
register for the convention are in a separate registration packet. If you need a
registration packet or have any questions, problems, or comments, please call
Junior State National Headquarters toll free at 1-800-334-5353 or 1-800-317-
9338 for the Washington, D.C. and Texas Congress Conventions.

YOU write the bills.

YOU make the speeches.
YOU cast the votes.

YOU MAKE THE LAWS.

 ASSEMBLING A DELEGATION form for every delegate, and a hotel rooming
list for your delegation.
The Junior State's Congress Conventions are
designed for politically aware high school
students. All student participants from your
high school register together as one
delegation. When looking for students to join
your delegation, you should approach
politically aware students like those in Model
U.N., YMCA Youth and Government, Young
Republicans and Young Democrats, and of
course, the Junior State. Student
Government officers, your high school's
newspaper staff, and honor society members SPONSORING LEGISLATION
will probably be interested in the convention,
too. Talk to history, government, or social Sponsoring legislation is the best way to
studies teachers about students who may be fully enjoy JSA's Congress Conventions. Do
interested. Teachers may wish to bring their you think the United States should create and
entire class. implement a national health care plan? Should
funding for artists be restricted based on the
Each delegation will be made up of a content of their artwork? What is your strategy
combination of Senators and Members of the for protecting our nation's environment? As the
House of Representatives. For every 3 sponsor of a bill, you have the chance to
delegates registered from your high address any topic on the national agenda.
school, one may be designated as a
Senator; the rest will be Representatives. Every delegation must submit at least
For example, a delegation of 19 students one bill for every five delegates. You can
would be composed of 6 Senators and 13 submit as many additional bills as you wish.
Representatives. (Please remember to round Each bill will be sponsored jointly by one
down). Each delegation will choose Senators Senator and one Representative. This allows
prior to the convention. You may opt to either two people to research topics, write legislation,
elect Senators or have your teacher advisor and prepare speeches together.
or delegation leader appoint the Senators.
Most Senators will co-sponsor at least one At the convention you will present your
bill, so your delegation's Senators should be bill at a committee hearing and on the floor of
knowledgeable and articulate. the House or the Senate. But speeches alone
are often not enough to ensure victory. You will
Once you have assembled your find yourself scrambling to get your bill on the
delegation, follow the registration procedures top of the agenda and organizing your
outlined in the registration packet. You will supporters to lobby for your bill. You will learn
need to send to the Junior State National the process and experience the passions of our
Headquarters one inclusive check for all nation's legislative system.
registration fees, a parent permission

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 WRITING YOUR BILL
Writing legislation. The process is easier than Draft your bill. To begin drafting your bill, you
you might think. If you are politically aware and must first concisely, in 5 to 15 words, state the
follow current events you probably already have purpose of your legislation. For example,
some good ideas for legislation. Below are legislation on drug testing might be "to provide
simple guidelines to follow for writing a bill. for drug testing of all commercial vehicle
operators." Legislation on arm sales might be
Select an area of interest. The first step in "to restrict military arms sales to politically
writing your bill is to select a topic. Write a bill unstable countries." This concise statement of
on an area of national politics that you know a purpose will be part of the title of your
little bit about. Like the U.S. Congress, the legislation.
convention will deal with a broad spectrum of
issues: foreign affairs, health and human Rationale for Bills and Amendments. Next,
services, finance, the environment, military you need to develop the rationale for your
affairs, business and commerce. legislation. This should be a short paragraph
that explains reasons why your legislation is
Research. Once you decide an area of necessary. For example, a rationale for a bill
interest, read newspaper and magazine articles lowering the minimum wage for teenagers
to get a sense of the current issues being might read:
discussed. Your public library should have
issues of Congressional Quarterly Weekly A lower minimum wage for teens will decrease
Report and Congressional Digest. The Library teen unemployment as statistics show that as
of Congress offers a database of recently the minimum wage increases so does teenage
unemployment. In the inner city, where teens
discussed Congressional bills on a website need gainful employment, businesses
called “Thomas” which can be found at currently won't hire teenagers when they can
thomas.loc.gov/. The Congressional Research hire an older person. Giving teenagers a
Service (CRS) provides members of Congress chance to gain valuable job experience far
with nonpartisan research and analysis of outweighs the fact that they will be paid less.
issues. Although these reports are not directly
available to the public, some members of Whereas Clauses for Resolutions:
Congress and political associations have Resolutions are non-binding statements of the
provided access to certain CRS reports on their opinion of Congress. All resolutions should
websites. Try getting these in-depth reports contain "Whereas clauses" instead of a
from http://opencrs.com/. paragraph that gives reasons why the Congress
should adopt the resolution. For example,
Select a specific subject/problem. The next whereas clauses for a resolution condemning
step is to pick one problem or issue from your offshore oil drilling might read:
general area of interest on which to focus. For
Whereas, Offshore oil drilling is a
example, if you are interested in the war on hazard to our coastlines and coastal
drugs you may wish to write legislation on drug wetlands, and;
testing. Or, if you are interested in foreign Whereas, The U.S. needs to decrease
affairs, you could write legislation to restrict its dependence on oil and move to
U.S. intervention abroad. cleaner forms of energy, and;
Whereas, Oil rigs off shore are
unsightly.
Determining the type of Legislation. There
are three types of legislation:
The body of your legislation. The main
• Bill: establishes a new law;
portion of your legislation is the provisions or
• Congressional Resolution: expresses the
sections. The first section should establish the
sentiment of Congress;
main effect of the legislation. The first section
• Constitutional Amendment: changes or of drug testing legislation could be: "All
additions to the U.S. Constitution. interstate commercial vehicle operators shall be

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subject to a random drug test at least once a For a bill: "Be it enacted by the Senate and
year." Other sections should establish any House of Representatives of the United States
limitations or restrictions: "The results of the of America in Congress assembled, that:"
drug test are to be kept confidential by the
employer." Also include any penalties that For a resolution: "Be it resolved by the Senate
accompany your new law: "Employers not and House of Representatives of the United
complying with this law shall be subject to fine States of America in Congress assembled,
of up to $10,000." that:"

All bills passed are assumed to go into For an amendment: "Be it amended by the
effect in 90 days (unless otherwise specified), Senate and House of Representatives of the
so you do not have to include the time when the United States of America in Congress
bill becomes law. If your legislation involves assembled, and upon approval of 3/4 of the
federal expenditures, list the cost. Generalized States, that:"
costs are acceptable. For example, you could
increase the space budget by 50%. The body of the bill should be divided
into sections and numbered 1, 2, 3, etc. There
Formatting your legislation. The legislation are several sample bills for you to follow at the
should be in Garamond font. The title should end of the handbook.
be capitalized and centered on the top of the
page along with the names of the Senator and At the bottom of the page, please
Representative who are sponsoring the bill and include the names, addresses, phone numbers
the name of your high school. The first line of and e-mail addresses of the bill sponsor(s).
your bill should be worded as follows:

THE PATH OF LEGISLATION

"How a Bill Becomes a Law"

Below is a description of the legislative process that is used at JSA's Congress Conventions. The legislative
path for this weekend-long convention is a modified version of the actual procedures of the U.S. Congress.

1. Legislation is sponsored jointly by a Senator and a Representative. The bill is introduced simultaneously
to the Senate and the House and assigned to the proper House and Senate Committees. Legislation is
assigned to committees in advance of the convention. You will receive a Legislative Index that contains all of
the legislation and committee assignments so that your chapter can prepare for the convention.

2. In the committees, the bills are debated in the order prescribed in the Legislative Index. The sponsors of
the bill are the proponent or opening speakers on the bill. During debate, the committee may propose and
pass amendments to the bill using amendment forms provided by the chair.

3. After debating the bill, the committee votes on the bill. If both the House Committee and Senate
Committee pass the bill, it goes on to the floors of the House and Senate. If neither committee passes the
bill, it dies in committee. If one committee passes the bill but the other does not, the bill goes only to the floor
of the legislative body whose committee passed the bill. For example, if the House Committee passes the
bill but the Senate Committee does not, the bill goes only to the floor of the House.

4. If both legislative bodies pass identical versions of the bill, the bill will be considered law.

5. One or both houses may decide to amend a bill as it moves through committee and onto the floor. If both
houses pass the bill in different forms, the Speaker of the House and the President Pro Tempore of the
Senate will appoint a Conference Committee. The committee will produce the version of the bill that will be
debated and voted on in both chambers. If both chambers pass this version of the bill, it will be considered
law.

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 CONGRESSIONAL RULES

COMMITTEE HEARINGS HOUSE AND SENATE SESSIONS

All student delegates are assigned to The House and Senate Sessions are
committees prior to the convention. The presided over by the Speaker of the House and
committees will: President Pro Tempore of the Senate,
respectively. These two Congressional leaders
1. determine the wording of the bills, by are selected in advance of the convention.
passing them as submitted or amending them.
Before the general sessions begin, the
2. rank the passed bills in order of importance. Rules Committee determines the order in which
the bills are debated, and establishes any
3. send legislation to the floors of the House modifications of the debate procedures for floor
and Senate. debate. The Rules Committee is composed of
the Speaker of the House, President Pro
4. choose one committee member to be the Tempore of the Senate, and other student
main opponent of the bill on the floor of the leaders of the House and Senate Committees.
House and the Senate.
The first order of business in the full
Committee Chairs, selected in advance sessions of the House and Senate is to hear
of the convention, will determine the order of reports from the committees. Each Committee
discussion. Chair will report on the bills that passed out of
committee.
If you are interested in applying to be a
Committee Chair or hold another position, After the reports have been read,
please refer to the Leadership Positions section debate can commence on the bills. Debate
of this booklet. procedure is as follows:

Sponsors present their legislation to the 1. The presiding officer reads or distributes the
committee. You should explain the reason your bill as approved by committee.
legislation is needed, the rationale behind and
restrictions or limitations in your legislation, and 2. Debate begins with a six minute opening
the definitions of any terms that may be speech from the sponsor of the bill, followed by
unclear. You have ten minutes for your formal a six minute opening speech from the main
presentation which include your presentation opponent of the bill (as selected by committee).
and questions from committee members. A If the main speakers do not use all of his or her
majority of votes will be required to pass time, he or she may yield the remaining time to
legislation out of committee. questions or to the chair.

3. After the main speeches are over, the

presiding officer asks for subsequent speeches
from members of the house. These speeches
are three minutes long and alternate between
the affirmative and the negative. Subsequent
speakers, if they have not used their full three
minutes, may yield their remaining time to:
a) questions;
b) another speaker on the same side; or
c) the chair.

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4. Subsequent speeches continue until are presented (on bills and amendments), and
previous question is moved and passed by a the vote is taken.
2/3rds vote. At that time, the main opponent is
given three minutes to make a closing speech Amendments are often added to
and finally, the sponsor will be given three legislation during the debate after the main
minutes to make a closing speech. speeches have been given. If you would like a
provision added or deleted from a piece of
5. Immediately after the closing speeches, the legislation you must:
house votes on the legislation. A majority is
required to pass bills and resolutions. 1. Submit the amendment in writing to the
Constitutional Amendments require a 2/3rds presiding officer.
vote to pass.
2. Raise your hand and be recognized by the
PARLIAMENTARY PROCEDURE presiding officer.

Committee Hearings as well as General 3. Introduce your amendment by reading the

House and Senate Sessions are run according specific language of the provision you wish
to parliamentary procedure as stated in added or deleted.
Robert's Rules of Order, Newly Revised.
4. The presiding officer will ask the sponsor of
Included with this handbook is a chart the legislation if the amendment is "friendly" --
on parliamentary procedure and rules. After this means the sponsor thinks your amendment
each session is called to order, the rules are in improves the legislation and agrees with it. If
effect. Motions are made by raising your hand, the amendment is "friendly", the amendment
being recognized by the presiding officer, and can be incorporated into the legislation by
telling the chair under what point (or motion) unanimous consent.
you rise.
5. If the amendment is not "friendly" or if
For example, if a member of the house unanimous consent is not given, the
wanted to suspend the rules of the debate to amendment must be seconded by another
make subsequent speeches two minutes long member of the house.
instead of the established three, s/he would:
6. At this point the debate will shift focus to a
1. Raise his/her hand and wait to be discussion of the amendment, not the whole
recognized by the presiding officer. legislation. You, as the person who proposed
the amendment, will have three minutes to
2. Tell the presiding officer the motion and the explain why you feel the amendment is needed.
purpose of the motion: "I move to suspend the Then speeches will alternate between
rules to limit subsequent speeches to two opponents of the amendment and proponents.
minutes."
7. Debate on the amendment ends when
3. The motion would then have to receive a someone moves the previous question on the
second from another member of the house. amendment, it is seconded, and passed.

4. This particular motion is not debatable under 8. A vote is then taken on whether or not to
parliamentary procedure so a vote is taken right adopt the amendment. Amendments require a
away. majority vote to pass.

5. This motion requires a two-thirds vote to 9. If the amendment fails, debate resumes on
pass. the original version of the legislation.

Another important motion is previous 10. If the amendment passes, the debate
question. If this motion passes, subsequent resumes on the legislation as amended.
speeches are discontinued, closing speeches
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 A common motion is point of personal
privilege. You should rise to a point of A subsequent speaker may have his/her
personal privilege if you are unable to hear the time extended if a motion stating the amount of
speaker, need to leave the room, and so forth. additional time is made, seconded, and passes
If you simply feel some personal discomfort (the with a vote of two-thirds or more.
room is too warm or too cold), you may not
interrupt the speaker. If, however, something is Legislation at the end of the orders of
seriously affecting the orderly progress of the the day may be moved up and discussed
debate, such as your being unable to hear due immediately with a motion to change the
to lack of amplification or disruptive delegates, orders of the day, which requires a 2/3rds
then you may interrupt the speaker and ask the vote.
presiding officer to rectify the situation.

TABLE OF PARLIAMENTARY MOTIONS

VOTE
INTERRUPT SECOND REQUIRED
MOTION TO USE PURPOSE OF MOTION SPEAKER? NEEDED? DEBATABLE TO PASS

A POINT OF ORDER To correct an error in YES NO NO Decision of

Parliamentary Procedure the Chair

POINT OF PERSONAL To make a personal request YES NO NO Decision of

PRIVILEGE during the proceedings the Chair

POINT OF To ask a question about the YES NO NO Answer from

PARLIAMENTARY INQUIRY proceedings Chair

MOVE TO ADJOURN To dismiss the meeting NO YES NO Majority

MOVE TO RECESS To dismiss the meeting for a NO YES NO Majority

specific length of time

CALL FOR DIVISION Request for a hand count YES NO NO Decision of

instead of a voice count the Chair

MOVE TO TABLE Postpone debate on a motion NO YES NO Majority

until a later time

MOVE THE PREVIOUS End debate NO YES NO 2/3rds

QUESTION

MOVE TO AMEND To add, delete, or modify NO YES YES Majority

provisions of legislation

MOVE TO LIMIT DEBATE To set a time limit on debating NO YES NO 2/3rds

the legislation or amendment

MOVE TO SUSPEND THE To take action contrary to NO YES NO 2/3rds

RULES established rules or set time
limits

MOVE TO CHANGE THE To change the agenda to move a NO YES NO 2/3rds

ORDERS OF THE DAY piece of legislation up on the
agenda

MOVE TO EXTEND THE To give the current speaker a NO YES NO 2/3rds

SPEAKER'S TIME specific amount of extra time.

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 SAMPLE BILLS
The first bill shows proper formatting for submitting a congressional bill. The next
three provide examples of the different wording for resolutions, bills and
amendments, in that order.

A BILL TO CREATE A FLAT TAX

Sponsored by: Senator Brian Lazarus of Lincoln High School

Representative Alex Levine of Lincoln High School

The current federal tax code is an overly complex system that attempts to redistribute wealth by
assessing higher tax rates on the wealthy than on the middle and lower classes. Wealthy
individuals foil the system by finding as many loopholes as possible to cut their tax liabilities. The
fairest way to assess taxes is to have everyone pay the same percentage of their income with no
deductions allowed.

Be it enacted by the Senate and House of Representatives of the United States, that:

Section 1. The Internal Revenue Code shall be amended to impose on the taxable
income of every individual a tax equal to 19 percent of the taxable income of such
individual for such taxable year.

Section 2. The Internal Revenue Code will further be amended to eliminate all
personal income tax deductions.

Brian Lazarus Alex Levine

60 Washington St. 40 Jefferson Ave.
Lincoln, WA 98989 Lincoln, WA 98989
483/383-3732 483/327-9847
[email protected] [email protected]

A RESOLUTION TO PROMOTE THE USE OF NUCLEAR ENERGY

Sponsored by: Senator Victoria LaMar of Hayward High School

Representative Joey Garcia of Hayward High School

Whereas: Nuclear power is a cheap and efficient source of energy; and

Whereas: Pollution from other forms of energy, specifically coal and natural gas, is
threatening to have an irreversible detrimental impact on the environment; and

Whereas: With today's technology, nuclear power is almost completely safe

Be it resolved by the Senate and House of Representatives that:

Section 1. The U.S. Department of Energy should take every step possible to
encourage the use of nuclear power.

Section 2. The Federal government, state governments, and private industry

should invest money into researching ways to make nuclear power sources even safer.

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 A BILL TO BAN COSMETIC RESEARCH ON ANIMALS

Sponsored by: Senator Megan Davis of Pope John XXIII High School
Representative Matthew Pelequin of Pope John XXIII High School

The cruel and inhumane use of animals for testing cosmetic products must stop. Every year over
50,000 cats, rabbits, and other animals are tortured, maimed, or even killed for the only purpose of
developing new cosmetic products. Unlike animal testing for medical research, this experimentation
does not benefit society in any productive way.

Be it enacted by the Senate and House of Representatives of the United States of America in
Congress assembled, that:

Section 1. This act bans the use of animal testing for the development of cosmetic
products.

Section 2. Animal testing will be allowed for medical research. A five member
National Animal Experimentation board will be appointed by the President to establish
the necessity and validity of all animal experimentation.

Section 3. If any animal experimentation is conducted without approval from the

National Animal Experimentation Board the person(s) or company involved will be fined
$7,000 for each animal harmed.

AN AMENDMENT TO PROVIDE EQUAL RIGHTS FOR ALL PEOPLE REGARDLESS OF SEX

Sponsored by: Senator Meredith Lincoln of Sehome High School

Representative Joanna Harper of Sehome High School

While there are more women than men in our country, women continue to be the objects of
discrimination. Their concerns include equal pay, discrimination on the job, and legal equity. Many
believe that these areas of concern can be addressed with the passage of the Equal Rights
Amendment which would prohibit discrimination based on sex.

Be it amended by the Senate and House of Representatives of the United States of America in
Congress assembled, and upon approval of 3/4 of the States, that:

Section 1. Equality of rights under the law shall not be denied or abridged by the
United States of America or by any state on account of sex.

Section 2. The Congress shall have the power to enforce this article by appropriate
legislation.

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 LEADERSHIP POSITIONS AVAILABLE

As a student-run Congressional Session, these conventions have several leadership

positions open to student delegates. The positions of Speaker of the House, President of the
Senate, and Committee Chairpersons will be selected prior to the conventions. The Speaker of the
House and President of the Senate chair the House and Senate, respectively, and also serve on
the Rules Committee of their house. The Committee Chairs will preside over the House and
Senate Committees. If you wish to apply for one of these prestigious positions, you must submit a
brief resume highlighting your experience with parliamentary procedure and leadership positions
you hold along with the application below.

Additionally, a number of Committee Clerks and Congressional Pages will be needed.

Committee Clerks will keep track of bills as they travel through each committee. Pages will help
ensure that the House and Senate sessions run smoothly by delivering messages between the
Members of Congress.

APPLICATION FOR A LEADERSHIP POSITION

Name______________________________________ Grad Year______________

Address_________________________________________________________________

City__________________________________State_________Zip__________________

Phone(_____)______________High School____________________________________

Email_________________________________________________________________

Position Interested in:

____Speaker of the House/President of the Senate/Committee Chair

(please submit a brief resume along with this application)

____Committee Clerk

____Congressional Page

I am attending THE CONGRESS CONVENTION at:__________________________________

Return application to
For West Coast: For East Coast, Midwest and Texas:
The Junior State of America The Junior State of America
400 S El Camino Real Ste. 300 1600 K St NW Ste. 803
San Mateo, California 94402 Washington, D.C. 20006
Questions? 800/334-5353 800/317-9338

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