Parliamentary Procedure

Overview

Most municipal governing bodies operate under Robert's Rules of Order Newly Revised (RONR), 12th Edition (September 2020), or a simplified version, supplemented by their own rules of procedure. Organizations whose bylaws prescribe "Robert's Rules of Order" without specifying an edition have automatically adopted the 12th edition.

Hierarchy of Procedural Authority

1. Federal and State Law (Open Meetings Act, etc.)
2. Municipal Charter (if applicable)
3. Local Rules of Procedure (council-adopted)
4. Robert's Rules of Order (as default/fallback)
5. Custom and Practice (how things have been done)

Important: In states with open meetings laws (all 50 states), the state open meetings act is the controlling legal framework for council meeting procedures — not Robert's Rules. RONR is supplemental: it governs areas where state law is silent (motion procedures, debate management, voting methods). When RONR and state law conflict, state law prevails. See the state reference in state-references/ for applicable open meetings requirements.

Always check municipal.local.md for the specific procedural rules adopted by your governing body.

Small Board Rules (RONR 12th Ed., §49)

Most city councils have 5-9 members, qualifying as "small boards" under RONR (~12 members or fewer). Small board rules are fundamentally different from the large-assembly procedures that make up the bulk of RONR:

• Members may speak without formal recognition from the chair
• Motions need not be seconded
• No limit on speaking frequency — members may speak multiple times on a question
• Informal discussion is permitted without a pending motion
• The chair may participate in discussion and vote on all questions
• Motions to close or limit debate (Previous Question, etc.) are generally not used

If the council has adopted RONR and has ~12 or fewer members, small board rules apply by default unless the body has adopted more formal procedures by rule. Most municipal councils operate under these relaxed procedures in practice, even if they don't realize the formal basis for doing so.

Basic Meeting Structure

Typical Agenda Order

1. Call to Order
2. Roll Call / Establishment of Quorum
3. Pledge of Allegiance / Invocation
4. Approval of Minutes
5. Public Comment (may be placed elsewhere)
6. Consent Agenda
7. Public Hearings
8. Action Items / New Business
9. Reports (staff, committee, elected officials)
10. Announcements
11. Adjournment

Quorum

• Definition: Minimum number of members required to conduct business
• Typical requirement: Majority of seated members
• If lost during meeting: No further action can be taken until restored
• Quorum call: Any member may request verification of quorum

Motions

Types of Motions (in order of precedence)

Privileged Motions (highest precedence):

1. Fix time to adjourn
2. Adjourn
3. Recess
4. Raise a question of privilege
5. Call for orders of the day

Subsidiary Motions: 6. Lay on the table 7. Previous question (call the question) 8. Limit/extend debate 9. Postpone to certain time 10. Commit/refer to committee 11. Amend 12. Postpone indefinitely

Main Motions (lowest precedence):

• Original main motion (introduces new business)
• Incidental main motions (procedural matters)

Motion Requirements

Motion	Second Required	Debatable	Amendable	Vote Required
Main motion	Yes	Yes	Yes	Majority
Amend	Yes	Yes	Yes	Majority
Previous question	Yes	No	No	2/3
Table	Yes	No	No	Majority
Postpone	Yes	Yes	Yes	Majority
Refer to committee	Yes	Yes	Yes	Majority
Adjourn	Yes	No	No	Majority
Recess	Yes	No	Yes	Majority
Point of order	No	No	No	Chair rules
Appeal	Yes	Yes	No	Majority

Making a Motion

1. Member seeks recognition from chair
2. Chair recognizes member
3. Member states: "I move that..."
4. Another member seconds (if required)
5. Chair states: "It has been moved and seconded that... Is there discussion?"
6. Debate occurs
7. Chair calls for vote
8. Chair announces result

Voting

Voice Vote (Viva Voce)

• Chair asks for "ayes" then "nays"
• Appropriate for routine matters
• Any member may request a roll call

Roll Call Vote

• Each member's vote is recorded by name
• Required for: appropriations, contracts, ordinances (varies by state)
• Provides public record of positions

Show of Hands / Standing Vote

• Visual confirmation of vote
• Used to verify unclear voice votes

Ballot Vote

• Secret ballot
• Rare in public meetings (transparency concerns)
• May be used for personnel matters in executive session

Voting Requirements

• Simple majority: More than half of those voting
• Majority of quorum: More than half of quorum (not just those voting)
• Supermajority: Usually 2/3 or 3/4 (required for certain actions)
• Unanimous: All members must agree

Check state law and local rules for specific voting requirements (e.g., ordinances may require supermajority, contracts may require roll call).

Recusal for Conflicts of Interest

When a member has a conflict of interest that requires recusal:

1. The member should announce the conflict before discussion begins on the agenda item
2. The member states the nature of the conflict for the record
3. The member leaves the dais (and, depending on local rules, may leave the room)
4. Recusal does not change the quorum count — the recused member is still considered present for quorum purposes
5. The member returns to the dais after the vote is completed

For detailed guidance on evaluating whether a conflict exists and the applicable legal standards, see the ethics-conflicts skill.

Debate

Rules of Debate

• Speak only when recognized by chair
• Address remarks through the chair
• Stay on topic
• No personal attacks
• Time limits may apply

Closing Debate

• Previous question motion: Requires a formal motion, a second (except in small boards), and a 2/3 vote — only then does debate end. See "Common Misconceptions" below.
• Time limit: Chair may impose or body may vote to limit
• Unanimous consent: "If there is no objection, we will close debate"

Amendments

Types

• First-degree amendment: Modifies the main motion
• Second-degree amendment: Modifies a first-degree amendment
• Substitute motion: Replaces the entire main motion

Amendment Rules

• Must be germane to the motion being amended
• Cannot merely negate the motion
• Vote on amendments before voting on main motion
• If substitute passes, original motion is replaced

Friendly Amendments

Under RONR, once a motion is stated by the chair, it belongs to the entire body — not to the maker. The maker's willingness to "accept" a "friendly amendment" is irrelevant; the amendment must be voted on (or adopted by unanimous consent in small boards). The common practice of the chair asking the maker to accept is technically incorrect, though widely practiced.

Common Procedural Situations

Point of Order

• "Point of order, Mr./Madam Chair"
• Raises concern about rule violation
• Chair rules immediately
• May be appealed to the body

Point of Information

• Request for clarification or facts
• Directed to chair or through chair to staff
• Not debatable

Point of Personal Privilege

• Raises matter affecting member personally
• Comfort, ability to hear, etc.
• Chair addresses immediately

Call for Division

• Requests verification of vote count
• Cannot be denied

Reconsideration

• Must be made by member who voted on prevailing side
• Usually must be made at same or next meeting
• Allows body to revisit decision

Consent Agenda

Purpose

• Groups routine, non-controversial items
• Approved in single motion
• Saves meeting time

Handling

1. Chair asks if any member wishes to remove items
2. Removed items are considered separately
3. Remaining items approved in bulk
4. Any member may remove an item (no reason needed)

Public Hearings

When Required

• Zoning changes
• Budget adoption
• Ordinance adoption (varies by state)
• Special/conditional use permits
• Other matters specified by law

Procedure

1. Chair opens hearing
2. Staff presentation
3. Applicant presentation (if applicable)
4. Public comment
5. Questions from governing body
6. Close hearing
7. Deliberation and action

Important Notes

• Quasi-judicial hearings have stricter rules
• Ex parte contacts may be prohibited
• Evidence must be in the record
• Findings of fact may be required

Executive Session / Closed Session

Permitted Topics (typical - check state law)

• Personnel matters
• Litigation (pending or imminent)
• Real estate acquisition
• Labor negotiations
• Security matters

Requirements

• Must cite specific statutory exception
• Must return to open session for action
• Minutes kept but may be sealed
• Cannot take final action in closed session (usually)

Scripted Chair Language

Exact language the chair can use for common meeting situations. Adapt as needed for local conventions.

Opening an Agenda Item

"The next item on the agenda is [Item Number], [Description]. I'll ask [staff member] to present. After the presentation, I'll open it up for questions and discussion."

Calling for a Motion

"Is there a motion on this item?" [After motion] "We have a motion by [Member] to [substance]. Is there a second?" [After second] "Moved by [Member], seconded by [Member]. Is there discussion?"

Calling the Vote

"Seeing no further discussion, all those in favor say 'aye.' [Pause] All those opposed say 'nay.' [Pause] The motion carries [or fails], [X] to [Y]."

Unclear Voice Vote

"The chair is unable to determine the result. I'll ask for a roll call vote. Clerk, please call the roll."

Handling a Point of Order

"State your point of order." [After hearing it] "The point is [well taken / not well taken]. [Explanation]." [If appealed] "The ruling of the chair has been appealed. Is there a second to the appeal? [If seconded] The question is: shall the decision of the chair be sustained? All those in favor of sustaining the chair's ruling say 'aye.' All those opposed say 'nay.'"

Opening a Public Hearing

"This is a public hearing on [subject]. I will now open the public hearing. Anyone wishing to speak on this matter may come to the podium. Please state your name and address for the record. You will have [X] minutes."

Closing a Public Hearing

"Is there anyone else wishing to speak? [Pause] Seeing no one, I will close the public hearing. The matter is now before the [council/board] for discussion and action."

Announcing a Recusal

"[Member Name] has declared a conflict of interest on this item and is recusing [himself/herself/themselves]. Let the record reflect that [Member Name] has left the dais and is not participating in discussion or voting on this item."

Conflict Resolution Scenarios

Scenario 1: Member Speaks Out of Turn

Situation: A member begins speaking on an item without being recognized by the chair. Chair response: "Excuse me, [Member]. I need to recognize speakers. [Other Member] currently has the floor. I'll recognize you when they are finished."

Scenario 2: Disruptive Public Comment

Situation: A member of the public becomes disruptive, uses personal attacks, or exceeds their time. Chair response: "Sir/Ma'am, I need to ask you to address your comments to the [council/board] and refrain from personal remarks. You have [X] seconds remaining." If behavior continues: "I'm going to ask you to conclude your remarks. If you're unable to do so respectfully, I'll need to move to the next speaker." Last resort: "I'm calling a recess. We will resume in [X] minutes." (Do NOT have the speaker removed unless there is a genuine safety threat.)

Scenario 3: Attempt to Revisit a Decided Vote

Situation: A member wants to reopen discussion on an item already voted upon. Chair response: "That item has already been acted upon. A motion to reconsider may be made by a member who voted on the prevailing side, and it must be made at this meeting or the next regular meeting, per our rules of procedure."

Scenario 4: Loss of Quorum Mid-Meeting

Situation: A member leaves and quorum is lost. Chair response: "The clerk has informed me that we no longer have a quorum. The [council/board] cannot take any further action. We can continue discussion for informational purposes only, or I will entertain a motion to adjourn. All remaining action items will be carried to the next meeting."

Scenario 5: Multiple Pending Amendments

Situation: An amendment to an amendment is offered while a first amendment is pending. Chair response: "We have a second-degree amendment on the floor. We must first dispose of the amendment to the amendment, then the first amendment, before voting on the main motion. Let's take these in order. The question before us is the amendment to the amendment: [state it]. Is there discussion on this amendment?"

Quasi-Judicial Hearing Procedures

Some matters before a municipal body are quasi-judicial rather than legislative. The distinction has important procedural consequences.

Legislative vs. Quasi-Judicial

Feature	Legislative	Quasi-Judicial
Nature	General policy decisions affecting the community	Applying existing standards to a specific application
Examples	Rezoning, ordinance adoption, budget	Variances, special use permits, license revocations
Standard	Policy judgment, broad discretion	Findings of fact based on evidence in the record
Ex parte contacts	Generally permitted (lobbying is normal)	Prohibited — all evidence must be presented in the hearing
Basis for decision	Political, economic, community values	Evidence and testimony in the record, measured against code standards
Appeal	Political (elections) or legislative challenge	Judicial review (court examines the record)

Quasi-Judicial Hearing Script

1. Chair opens: "This is a quasi-judicial hearing on [Application/Case No.]. All testimony will be taken under oath. Members of the [board/commission] are reminded that their decision must be based solely on the evidence presented at this hearing and the applicable standards in our code."

2. Ex parte disclosure: "Before we begin, do any members have ex parte communications to disclose regarding this application?" [Each member discloses or states none]

3. Swearing in: "Will all persons intending to testify please rise and raise your right hand? Do you swear or affirm that the testimony you are about to give is the truth, the whole truth, and nothing but the truth?"

4. Staff presentation: Staff presents findings, applicable code standards, and staff recommendation

5. Applicant presentation: Applicant presents case, may call witnesses

6. Public testimony: Supporters, then opponents, then neutral (or all together per local rules)

7. Applicant rebuttal: Applicant may respond to opposing testimony

8. Close evidentiary record: "The evidentiary portion of this hearing is closed. No further testimony or evidence will be accepted."

9. Deliberation and findings: Board discusses the evidence against each applicable standard and makes findings of fact. "Based on the evidence in the record, I find that the applicant [has/has not] met the standard for [criterion]."

Motion Quick Reference Card

Motion	Exact Language	Second?	Debatable?	Amendable?	Vote
Main motion	"I move that [action]."	Yes	Yes	Yes	Majority
Amend	"I move to amend the motion by [adding/striking/substituting] [text]."	Yes	Yes	Yes	Majority
Table	"I move to table this item."	Yes	No	No	Majority
Untable	"I move to take [item] from the table."	Yes	No	No	Majority
Previous question	"I move the previous question." (calls for immediate vote)	Yes	No	No	2/3
Postpone	"I move to postpone this item to [date/meeting]."	Yes	Yes	Yes	Majority
Refer to committee	"I move to refer this matter to [committee] for [purpose]."	Yes	Yes	Yes	Majority
Reconsider	"I move to reconsider the vote on [item]."	Yes	Yes	No	Majority
Point of order	"Point of order, Mr./Madam Chair."	No	No	No	Chair rules
Appeal	"I appeal the decision of the chair."	Yes	Yes	No	Majority
Adjourn	"I move to adjourn."	Yes	No	No	Majority

Using Connected Tools

No municipal-code connection is needed for parliamentary procedure. This skill relies on the adopted rules of procedure and Robert's Rules of Order.

When connected tools are unavailable, work from uploaded rules of procedure and meeting agendas.

Planned connectors (not yet available — plugin works without these):

• agenda-management — meeting agendas, motion tracking, voting records

Municipal Configuration

Check municipal.local.md for:

• Adopted rules of procedure
• Quorum requirements
• Supermajority triggers
• Public comment procedures
• Executive session procedures

Common Misconceptions

"Calling the Question"

The most widespread parliamentary myth. Members commonly believe that saying "I call the question" forces an immediate vote. In fact, "Previous Question" (the formal name) requires:

1. A motion ("I move the previous question")
2. A second (except in small boards where seconds aren't required)
3. An immediate vote on whether to end debate — requiring a two-thirds supermajority
4. Only if that vote passes does the body then vote on the underlying motion

A single member cannot unilaterally end debate.

"Tabling" vs. "Postponing"

These are different motions with different effects:

• Lay on the Table: Temporarily sets aside a matter for urgent business. No debate. Requires majority vote. The matter can be taken from the table later but has no automatic return date.
• Postpone to a Certain Time: Delays consideration to a specific time or meeting. Debatable. The matter automatically comes up at the designated time.

Most council members who say "table it" actually mean "postpone it." Using the wrong motion can have unintended consequences.

Simplified Alternatives

For councils finding full RONR overly formal, consider alternatives designed for small legislative bodies:

• UNC School of Government: Suggested Rules of Procedure for a City Council (4th ed. 2017) — eliminates much RONR complexity while maintaining core principles
• Ann MacFarlane: Mastering Council Meetings — written specifically for local government
• Note: The Illinois Municipal Code does not mandate a specific parliamentary procedure manual. Most municipalities adopt RONR by reference in their municipal code or council rules, but simplified alternatives are equally valid.

Related Skills

• ethics-conflicts — Recusal procedures, conflict of interest evaluation, and ethics standards that apply during meetings
• open-meetings-foia — Meeting notice requirements, closed session procedures, public access and recording rights
• council-communication — Motion-ready language, resolution drafting, and document preparation for council action