2013 John C. Roberts. Individuals and nonprofit institutions may reproduce and distribute copies of this Article in any format at or below cost, for educational purposes, so long as each copy identifies the author, provides a citation to the Notre Dame Law Review, and includes this provision in the copyright notice. * Dean and Professor of Law Emeritus, DePaul University College of Law. A version of this paper was delivered at the Notre Dame Law Symposium entitled “The American Congress: The Legal Implications of Gridlock,” on November 16, 2012. I am indebted to Mark Giangrande of DePaul’s Rinn Law Library for research assistance on congressional materials. I first encountered these issues while serving as General Counsel to the United States Senate Committee on Armed Services from 1977 to 1980, where I benefited greatly from the advice and guidance of both the Senate Office of Legislative Counsel and the Office of the Parliamentarian.