Legislative Procedure for Disapproving the Renewal of China's Most-Favored-Nation Status
CRS Report for Congress
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Legislative Procedure for Disapproving the
Renewal of China’s Most-Favored-Nation Status
Vladimir N. Pregelj
Specialist in International Trade and Finance
Economics Division
Summary
The continuation in effect of China’s most-favored-nation status with the United
States is contingent principally on the maintenance in force of the waiver of full
compliance with the requirements of the freedom-of-emigration (“Jackson-Vanik”)
amendment of the Trade Act of 1974. Waivers and their underlying authority must be
extended annually. Such extensions are automatic upon presidential recommendation,
to be made by June 3, unless they are disapproved by a joint resolution of Congress.
Such resolutions are enacted — should the Congress wish to do so — under specific
procedural provisions, deemed a part of the rules of either House, and in this context
superseding other rules inconsistent with them. This report describes in functional order
and in detail the statutory procedure for the enactment of a joint resolution disapproving
the extension of the China waiver.
Presidential Action
A key element of China’s continued most-favored-nation (MFN; nondiscriminatory)
status in its trade with the United States is the maintenance in force of the presidential
waiver of China’s full compliance with the requirements of the freedom-of-emigration
amendment (“Jackson-Vanik amendment”) of the Trade Act of 1974. The waiver, first
issued on October 23, 1979, under the presidential authority then in effect, has been
maintained in force by annual renewals of the authority and the waiver itself.
The procedure for such renewals requires that the President determine that the
extension of the overall waiver authority and China’s (or any other affected country’s)
waiver will substantially promote the objectives of the freedom-of- emigration provision
and transmit, by June 3 of every year, a report to Congress with his recommendation for
the renewal of the waiver authority and specified waivers. The renewal recommendation
takes effect automatically on the following July 3 and remains in force for 12 months
unless it is disapproved by a joint resolution of Congress (or otherwise terminated).
Congressional Research Service ˜ The Library of Congress
Detailed Congressional Disapproving Action
Relevant legislation provides a detailed specific procedure for the enactment of the
joint resolution disapproving the recommendation to extend the waiver authority in its
entirety or, more likely, with respect to a specific country (e.g., China). The procedure
is set out in Section 152 of the Trade Act of 1974 (19 USC 2192) as modified by Section
1531 (19 USC 2193). Under this procedure, a disapproval resolution is considered on a
specific “fast track” (“expedited procedure”), providing for speedy legislative action, but
containing several specific procedural provisions. Any departure from this procedure
would disqualify the resolution from being so considered, and would subject it — like any
other disapproving action that Congress might wish to take in lieu — to the regular
legislative process for the enactment of a bill or joint resolution.
As with other rulemaking provisions in statutes, however, the procedure, despite
being enacted, is considered an exercise of the rulemaking power of either House and
deemed a part of its rules. Consequently, it can be changed by either House (with respect
to its rules) in the same manner as any other rule. The procedure supersedes other rules
only to the extent that they are inconsistent with them (Section 151(a); 19 USC 2191(a)).
The procedure for enacting a joint resolution disapproving the renewal of the waiver
authority contains the following specific steps and provisions2 (with some explanatory
comments added) in which it differs from the regular procedure:
(1) Introduction. A joint resolution to disapprove the extension of the Jackson-
Vanik waiver authority may be introduced by any Member at any time on or after the date
the President transmits to the Congress his recommendation for the extension of his waiver
authority (Section 402(d)(2)(C); 19 USC 2432(d)(2)(C)). Since the resolution is
considered a “revenue” measure, it must originate in the House of Representatives. This
does not mean that a disapproval resolution may not be introduced and considered in the
Senate, but rather that the resolution sent to the President for approval after being passed
by both Houses must be a House resolution. It, consequently, also means that disapproval
action cannot take place unless a joint resolution to that effect is introduced in the House
of Representatives.
(2) Mandatory language. The operative language of the resolution is prescribed
by law and must include the date on which the President transmitted his recommendation
to have his waiver authority extended and, if applicable, the country or countries which it
affects (Section 153(a); 19 USC 2193(a)). If the resolution is aimed only at China, its
language, after the resolving clause, must read: “That the Congress does not approve the
extension of the authority contained in Section 402(c) of the Trade Act of 1974
recommended by the President on [date] with respect to the People’s Republic of China.”
1 Unless otherwise indicated, numerical reference to specific statutes is made to sections of
the Trade Act of 1974.
2 While care has been taken in this report to accurately describe the procedure, it is
recommended that the actual language of the relevant provisions as referenced in the report also
be consulted.
(3) Referral. The resolution is referred to the Committee on Ways and Means
in the House and to the Committee on Finance in the Senate (Section 152(b); 19 USC
(4) Report or discharge. If the committee has not reported the resolution within
30 calendar (Section 153(b)(2); 19 USC 2193(b)(2)) days, it can be discharged from
further consideration of that resolution or any other resolution on the same matter. The
discharge motion must made on the second legislative day after the calendar day on which
the maker of the motion has announced his intention to do so and may be made only if the
committee has not yet reported a resolution with respect to the same matter (Section
A motion to discharge, which may be made only by an individual favoring the
resolution, is highly privileged in the House and privileged in the Senate; it is subject to
limited debate (1 hour, equally divided between its supporters and opponents in the House,
and between the majority leader and the minority leader, or their designees, in the Senate).
The resolution may not be amended, and the vote on it may not be reconsidered (Section
(5) Initiation of consideration. A motion to proceed to the consideration of a
reported or discharged disapproval resolution is highly privileged in the House and
privileged in the Senate; in either House, it may not be amended or debated, and the vote
on it may not be reconsidered (Section 152(d)(1) and (e)(1); 19 USC 2192(d)(1) and
(e)(1)).
(6) Floor debate. In either House, debate on the disapproval resolution is
limited to 20 hours, equally divided between the supporters and opponents in the House,
and between the majority leader and the minority leader, or their designees, in the Senate
(Section 152(d)(2) or (e)(2); 19 USC 2192(d)(2) or (e)(2)); the resolution is amendable
only with respect to the specific countries to which it is to apply34(Section 153(b)(3) and
(4); 19 USC 2193(b)(3) and (4)); a motion further to limit debate on the resolution or on
an amendment to it, or, in the Senate, also on any other debatable motion or appeal, is not
debatable (Section 152(d)(2) and (e)(4), and 153(b)(3) and (4); 19 USC 2192(d)(2) and
(e)(4), and 2193(b)(3) and (4)); a motion to recommit the resolution is not in order nor,
in the House, a motion to reconsider the vote on the resolution (Section 152(d)(2) and
(e)(4); 19 USC 2192(d)(2) and (e)(4)).
Debate on any amendment to the disapproval resolution is limited to one hour,
equally divided in the House between the supporters and opponents of the amendment; in
3 Since, however, it is most likely that, as in the past, a determination with respect to China
would be made on a date other than that with respect to other countries, the respective disapproval
resolution would apply only to China. Hence, an amendment extending the resolution to encompass
other countries would, in practice, not be possible. On the other hand, amending the resolution by
striking China from it would nullify the disapproval of the renewal of China’s waiver, an intent
more appropriately carried out by defeating the entire resolution.
4While care has been taken in this report to accurately describe the procedure, it is
recommended that the actual language of the relevant provisions as referenced in the report also
be consulted.
the Senate, the one-hour limit applies to any debatable motion or appeal and is divided
between the mover and the manager of the resolution (except when the manager favors
the amendment, motion, or appeal, in which case the time in opposition is controlled by
the minority leader or his designee). Such leaders in the Senate may allot additional time
to any Senator (Section 152(e)(3) and 153(b)(3) and (4); 19 USC 2192(e)(3) and
In the Senate, the overall limit on debate time includes in each instance the time for
debate of any debatable motion or appeal. In the House, time for debate of any other
debatable motion would be limited by general rules of the House.
In the House, motions to postpone the consideration of a disapproval resolution, or
to proceed to the consideration of other business, and appeals from the decisions of the
Chair as to the application of the Rules of the House to the procedure relating to a
disapproval resolution (which specifically govern such procedure except as provided for
in Section 152(e); 19 USC 2192(e)) are not debatable (Section 152(d)(3)-(5); 19 USC
Once a disapproval resolution has been adopted by either House, the same House
may not consider another disapproval resolution with respect to the same presidential
recommendation (Section 153(c); 19 USC 2193(c)).
(7) Special procedure for Senate consideration. In view of the “revenue” nature
of the measure, specific steps are set out for the consideration in the Senate of a
disapproval resolution passed by the House of Representatives (which must be referred in
the Senate to the Committee on Finance; Section 152(f)(1)(A)(i); 19 USC
(a) If a Senate resolution has been introduced (but not yet passed) before the
Senate receives the passed House resolution, the House resolution is placed on the Senate
calendar. If the Senate and the House resolutions contain identical matter (e.g.,
disapproval only with respect to China), the procedure in the Senate with respect to its
resolution is the same as if no resolution had been received from the House, but the vote
on passage is on the House resolution (Section 152(f)(1)(A)(ii); 19 USC 2192(f)(1)(A)(ii).
(b) If the Senate passes its own joint resolution before receiving the passed
House resolution containing identical matter, the Senate resolution is held at the desk, and
the House resolution, when received, is deemed to have been passed (Section
(c) If the texts of the Senate and the House resolutions are not identical,5 the
Senate votes on its own resolution and, if passed, automatically substitutes its text for that
of the passed House resolution, which is then returned, as amended, with a request for
conference (Section 152(f)(2); 19 USC 2192(f)(2)).
5In view of the past practice (see Footnote 3) of a separate presidential determination for
China and introduction of a disapproval resolution affecting only China, it is unlikely that the
House and the Senate resolutions would not be identical, and a conference would not be necessary.
(8) Conference report. A specific procedure is also set up for the consideration
in the Senate of the conference report. The procedure limits Senate debate on the
conference report (including all amendments, and debatable motions and appeals) to 10
hours, equally divided between the majority and minority leader or their designees; debate
on any debatable motion or appeal is limited to one hour equally divided between the
mover and the manager of the report (Section 153(d)(1); 19 USC 2193(d)(1)); debate on
each amendment in disagreement is limited to 30 minutes, equally divided between the
manager of the report and the minority leader or his designee, and an amendment to an
amendment in disagreement must be germane (Section 153(d)(2); 19 USC 2193(d)(2)).6
(9) Enactment. A joint resolution of disapproval must be adopted by both
Houses and transmitted to the President for his signature within 60 days from the date the
previous waiver authority would have expired (i.e., by August 31) (Section
(10) Veto override. If the President vetoes the resolution and the Congress
wishes to override the veto, both Houses must vote for the override either by the August
whichever is later (Section 402(d)(2)(A)(ii); 19 USC 2432(d)(2)(A)(ii). The 15-day
deadline for the override of the presidential veto is computed by excluding any Saturday
and Sunday on which either House is not in session, and the days on which either House
is in adjournment sine die or for more than 3 days to a day certain (Section 154(b); 19
USC 2194(b)).
In the Senate, consideration of any veto message, including consideration of all
debatable motions and appeals, is limited to 10 hours, equally divided between the majority
and the minority leaders or their designees (Section 152(f)(3); 19 USC 2192(f)(3)). House
consideration of veto message is limited by its general rules.
(11) Entry into effect. Waiver authority as described in the disapproval
resolution ceases to be effective on the 61st day after the date the joint resolution is
enacted (Section 402(d)(2)(B); 19 USC 2432(d)(2)(B)), which, in turn, also terminates,
as of that date, any waivers and grants of MFN status issued under that waiver authority
(Section 402(c)(3); 19 USC 2432(c)(3)). A waiver can also be terminated at any time by
an executive order (Section 402(c)(3); 19 USC 2432(c)(3)).
(12) If the annual extension of the waiver authority or, specifically, China’s
waiver, is not nullified by the enactment of a joint resolution of disapproval or the
authority is not otherwise terminated or modified (e.g., by a specific measure enacted
under regular procedure), the authority and the waiver (as well as China’s MFN status)
remain in force through July 2 of the following year, when they must again go through the
renewal procedure.
6 In the House, general rules normally limit debate on conference reports to one hour (if the
previous question is ordered). The hour is divided between majority and minority managers and,
if both support the report, an opponent also receives one-third of the time.