BILLS--SECOND READING IN THE HOUSE.
In Parliament, after the bill has been read a second time, if on the
motion and question it be not committed, or if no proposition for
commitment be made, the Speaker reads it by paragraphs, pausing between
each, but putting no question but on amendments proposed; and when
through the whole, he puts the question whether it shall be read a third
time? if it come from the other House; or, if originating with
themselves, whether it shall be engrossed and read a third time? The
Speaker reads sitting, but rises to put questions. The clerk stands
while he reads.
[[40]But the Senate of the United States is so much in the habit of
making many and material amendments at the third reading, that it has
become the practice not to engross a bill till it has passed--an
irregular and dangerous practice, because in this way the paper which
passes the Senate is not that which goes to the other House, and that
which goes to the other House as the act of the Senate has never been
seen in Senate. In reducing numerous, difficult, and illegible
amendments into the text, the Secretary may with the most innocent
intentions, commit errors which can never again be corrected.]
The bill being now as perfect as its friends can make it, this is the
proper stage for those fundamentally opposed to make their first attack.
All attempts at earlier periods are with disjointed efforts, because
many who do not expect to be in favor of the bill ultimately are willing
to let it go on to its perfect state, to take time to examine it
themselves and to hear what can be said for it, knowing that after all,
they will have sufficient opportunities of giving it their veto. Its
last two stages, therefore, are reserved for this--that is to say, on
the question whether it shall be engrossed and read a third time, and
lastly, whether it shall pass? The first of these is usually the most
interesting contest, because then the whole subject is new and engaging;
and the minds of the members having not yet been declared by any trying
vote, the issue is the more doubtful. In this stage, therefore, is the
main trial of strength between its friends and opponents, and it
behooves every one to make up his mind decisively for this question, or
he loses the main battle; and accident and management may, and often do,
prevent a successful rallying on the next and last question, whether it
shall pass.
When the bill is engrossed, the title is to be endorsed on the back and
not within the bill. _Hakew._, 250.