[106th Congress House Rules Manual -- House Document No. 106-320]
[From the U.S. Government Printing Office Online Database]
[DOCID:hrulest-56]

[Page 303-307]

                           sec. lii--treaties

* * * * *
  Treaties are <> legislative acts. A treaty is the law of the land. It
differs from other laws only as it must have the consent of a foreign
nation, being but a contract with respect to that nation. In all
countries, I believe, except England, treaties are made by the
legislative power; and there, also, if they touch the laws of the land
they must be approved by Parliament. Ware v. Hylton, 3 Dallas's Rep.,
223. It is acknowledged, for in

[[Page 304]]

stance, that the King of Great Britain cannot by a treaty make a citizen
of an alien. Vattel, b. 1, c. 19, sec. 214. An act of Parliament was
necessary to validate the American treaty of 1783. And abundant examples
of such acts can be cited. In the case of the treaty of Utrecht, in
1712, the commercial articles required the concurrence of Parliament;
but a bill brought in for that purpose was rejected. France, the other
contracting party, suffered these articles, in practice, to be not
insisted on, and adhered to the rest of the treaty. 4 Russell's Hist.
Mod. Europe, 457; 2 Smollet, 242, 246.
  By the <> Constitution of the United States this department of
legislation is confined to two branches only of the ordinary
legislature--the President originating and the Senate having a negative.
To what subjects this power extends has not been defined in detail by
the Constitution; nor are we entirely agreed among ourselves. 1. It is
admitted that it must concern the foreign nation party to the contract,
or it would be a mere nullity, res inter alias acta. 2. By the general
power to make treaties, the Constitution must have intended to
comprehend only those subjects which are usually regulated by treaty,
and can not be otherwise regulated. 3. It must have meant to except out
of these the rights reserved to the States; for surely the President and
Senate can not do by treaty what the whole Government is interdicted
from doing in any way. 4. And also to except those subjects of
legislation in which it gave a

[[Page 305]]

participation to the House. This last exception is denied by some on the
ground that it would leave very little matter for the treaty power to
work on. The less the better, say others. The Constitution thought it
wise to restrain the executive and Senate from entangling and embroiling
our affairs with those of Europe. Besides, as the negotiations are
carried on by the executive alone, the subjecting to the ratification of
the representatives such articles as are within their participation is
no more inconvenient than to the Senate. But the ground of this
exception is denied as unfounded. For examine, e.g., the treaty of
commerce with France, and it will be found that, out of thirty-one
articles, there are not more than small portions of two or three of them
which would not still remain as subjects of treaties, untouched by these
exceptions.

  The <> participation of the House in the treaty-making power has
been often examined since Jefferson's Manual was written. The House has
in several instances taken action in carrying into effect, terminating,
enforcing, and suggesting treaties (II, 1502-1505, 1520-1522), although
sometimes the propriety of requesting the executive to negotiate a
treaty has been questioned (II, 1514-1517).
  The exact <> authority of the House in the making of general treaties has
been the subject of differences of opinion. In 1796 the House affirmed
that, when a treaty related to subjects within the power of Congress, it
was the constitutional duty of the House to deliberate on the expediency
of carrying such treaty into effect (II, 1509); and in 1816, after a
discussion with the Senate, the House maintained its position that a
treaty must depend on a law of Congress for its execution as to such
stipulations as relate to subjects constitutionally entrusted to
Congress (II, 1506). In 1868 the House's assertion of right to a voice
in carrying out the stipulations of certain treaties was conceded in a
modified form (II, 1508). Again, in 1871, the House asserted its
prerogative (II, 1523). In 1820 and 1868 there were discussions of the
House's functions as to treaties ceding or acquiring

[[Page 306]]

foreign territory (II, 1507, 1508), and at various other times there
have been discussions of the general subject (II, 1509, 1546, 1547; VI,
324-326).
  After long and <> careful consideration the Judiciary Committee of the House
decided, in 1887, that the executive branch of the Government might not
conclude a treaty affecting the revenue without the assent of the House
(II, 1528-1530), and a Senate committee after examination concluded that
duties were more properly regulated with the publicity of congressional
action than by treaties negotiated by the President and ratified by the
Senate in secrecy (II, 1532). In practice the House has acted on revenue
treaties (II, 1531, 1533); and in 1880 it declared the negotiation of a
revenue treaty an invasion of its prerogatives (II, 1524). At other
times the subject has been discussed (II, 1525-1528, 1531, 1533).
  After long <> discussion the House, in 1871, successfully asserted its
right to a voice in approving Indian treaties (II, 1535, 1536), although
in earlier times this prerogative had been jealously guarded by the
executive (II, 1534).
  There have been various conflicts with the executive over requests of
the House for papers relating to treaties (II, 1509-1513, 1518, 1519,
1561).

  Treaties being <> declared, equally with the laws of the United States, to be the
supreme law of the land, it is understood that an act of the legislature
alone can declare them infringed and rescinded. This was accordingly the
process adopted in the case of France in 1798.

  Notice to a foreign government of the abrogation of a treaty is
authorized by a joint resolution (V, 6270).

  It has <> been the usage for the Executive, when it communicates a
treaty to the Senate for their ratification, to communicate also the
correspondence of the negotiators. This having been omitted in the case
of the Prussian treaty, was asked by a vote of the House of February 12,
1800, and was obtained. And in December, 1800, the convention of that
year between the United States and France, with the report of the
negotiations by the en

[[Page 307]]

voys, but not their instructions, being laid before the Senate, the
instructions were asked for and communicated by the President.
  The mode of voting on questions of ratification is by nominal call.

  The Senate now has rules governing its procedure on treaties.