which it does not wish to refer to a committee, and yet where the
subject matter is not well digested

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and put into proper form for its definite action, or, when for any other
reason, it is desirable for the assembly to consider a subject with all
the freedom of an ordinary committee, it is the practice to refer the
matter to the "Committee of the Whole."* [In large assemblies, such as
the U. S. House of Representatives, where a member can speak to any
question but once, the committee of the whole seems almost a necessity,
as it allows the freest discussion of a subject, while at any time it
can rise and thus bring into force the strict rules of the assembly.]

If it is desired to consider the question at once, the motion is made,
"That the assembly do now resolve itself into a committee of the whole
to take under consideration," etc., specifying the subject. This is
really a motion to "commit" [see § 22 for its order of precedence,
etc.] If adopted, the Chairman immediately calls another member to the
chair, and takes his place as a member of the committee. The committee
is under the rules of the assembly, excepting as stated hereafter in
this section.

The only motions in order are to amend and adopt, and that the committee
"rise and report," as it cannot adjourn; nor can it order the "yeas and
nays" [§ 38]. The only way to close or limit debate in committee of the
whole, is for the assembly to vote that the debate in committee shall
cease at a certain time, or that after a certain time no debate shall be
allowed excepting on new amendments, and then only one speech in favor
of