The Law Library of Congress, Global Legal Research Center 

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Parliamentary Procedures 

Requiring a Supermajority in 

Selected Jurisdictions 

Australia • Belarus • Czech Republic • Demark • Hungary • Kosovo 

Lithuania • Romania • South Korea • Switzerland 

April 2017
This report is provided for reference purposes only. 

It does not constitute legal advice and does not represent the official 

opinion of the United States Government. The information provided 

reflects research undertaken as of the date of writing. 

It has not been updated.
The Law Library of Congress 1

Parliamentary Procedures Requiring a Supermajority 

in Selected Jurisdictions 

Staff of the Global Legal Research Directorate*

I. Introduction 

This report prepared by research staff of the Law Library of Congress identifies countries where 

a vote by a supermajority of legislators is required to change or initiate some parliamentary 

procedures. The report’s focus is mainly on the procedural requirements for deviation from 

standing orders and the termination of filibusters. Following a detailed review of procedural 

rules accepted by legislatures worldwide, the report includes nine foreign jurisdictions where 

legal acts defining parliamentary procedures require a qualified majority vote on a motion to 

proceed with debating a bill, or to close deliberations and move to voting. The addition of 

Switzerland to the study serves as a historic example because similar procedures existed in the 

Swiss Parliament before they were repealed in 1974. 

Many countries require a qualified majority vote in parliament for the adoption of specific types 

of legislation, such as constitutional amendments, constitutional laws, and impeachment 

resolutions, or for ratifying international treaties, suspending parliamentary immunity, or 

deciding whether to conduct a closed session of the legislature, among others. These instances 

of supermajority votes were not considered for the purpose of this report. 

All countries reviewed define “supermajority” differently. Depending on the issue under 

consideration, the required majority is calculated based on the number of members present at a 

particular parliamentary sitting (Denmark, Hungary, Kosovo, Lithuania) or the total number of 

legislators elected to the parliamentary body (Belarus, South Korea). Because procedural issues 

in the Czech and Romanian parliaments are resolved mainly in the committees, a qualified 

majority (three-fifths and two-thirds, respectively) of all committee members is required. In 

Australia, an “absolute majority,” which is required to move motions to suspend a standing 

order, is simply the majority of all members of the chamber, while other procedural issues are 

resolved by the agreement of the majority of the members present for the vote, a 

“simple majority.” 

Of those countries surveyed, only a few, notably Australia, Denmark, Lithuania, and South 

Korea, have specific procedural rules applicable to regulating the length of debates on bills under 

consideration. Following a vote by the established qualified majority, deviations from debate 

procedures are allowed for discussing “urgent matters” in Hungary and constitutional 

amendments in Belarus. In the Czech Republic and Romania, debates and speeches can be 

limited in the committees only, and that requires a vote by the supermajority of the committee 

* At present there are no Law Library of Congress research staff members versed in Czech, Hungarian, Romanian,

or Korean. Country surveys for the Czech Republic, Hungary, Romania, and South Korea were prepared by the 

authors’ reliance on practiced legal research methods and on the basis of relevant legal resources, chiefly in English, 

currently available in the Law Library and online. 
Parliamentary Procedures Requiring a Supermajority in Selected Jurisdictions 

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members. A supermajority vote is also a requirement to change committee business in the 

parliaments of the Czech Republic and Hungary. Deviation from any established procedure 

needs the approval of the supermajority of the members of parliament present in Hungary and 

Kosovo. Overall, the findings of this report demonstrate that in the majority of the countries, the 

legislatures either do not require a supermajority vote to change established rules of 

parliamentary procedure or do not provide for the possibility of a filibuster. 

II. Country Surveys

Australia

Both the Australian House of Representatives and Senate have rules that enable motions to be 

moved for the suspension of standing orders.1 Such motions may be used to change the order of 

business before the relevant house,2

 or to permit the introduction of bills and their passage 

without delay,3 among other matters.4 If motions to suspend standing orders are moved without 

notice, then an “absolute majority” of members must vote in favor of the motion.5

 This means 

that more than half of the total number of members of the relevant house must vote in favor of 

the motion, as opposed to a simple majority where only a majority of those present for the vote 

must vote in favor of the motion.6

1

 ANNOTATED STANDING ORDERS OF THE AUSTRALIAN SENATE, ch. 33, “Effect and Suspension of Standing Orders, 

SO 209: Motion for Suspension” (3d ed. 2009), http://www.aph.gov.au/About_Parliament/Senate/Powers_practice 

_n_procedures/aso/so209, archived at https://perma.cc/3T4H-6CSF; HOUSE OF REPRESENTATIVES STANDING

ORDERS AS AT SEPT. 13, 2016, ch. 6, “Business and Proceedings of the House, SO 47: Motions for Suspension of 

Orders” (rev. ed. 2016), http://www.aph.gov.au/~/media/05 About Parliament/53 HoR/532 PPP/StandingOrders/ 

chapter6.pdf, archived at https://perma.cc/S8YP-7NH4. 

2

 ODGERS’ AUSTRALIAN SENATE PRACTICE, ch. 8, “Conduct of Proceedings: Postponement and Rearrangement of 

Business” (14th ed. 2016), http://www.aph.gov.au/About_Parliament/Senate/Powers_practice_n_procedures/Odgers 

_Australian_Senate_Practice/Chapter_08#h15, archived at https://perma.cc/ZUZ3-4JZV; id. ch. 8, “Conduct of 

Proceedings: Suspension of Standing Orders,” http://www.aph.gov.au/About_Parliament/Senate/Powers_practice 

_n_procedures/Odgers_Australian_Senate_Practice/Chapter_08#h19, archived at https://perma.cc/USF4-68MW; 

HOUSE OF REPRESENTATIVES PRACTICE, ch. 9, “Motions: Notice” (6th ed. Sept. 2012), http://www.aph.gov.au/ 

About_Parliament/House_of_Representatives/Powers_practice_and_procedure/Practice6/Practice6HTML?file=Cha

pter9§ion=02, archived at https://perma.cc/56PK-PFXD. 

3

 HOUSE OF REPRESENTATIVES PRACTICE, ch. 10, “Legislation: Procedures to Speed the Passage of Bills” (6th ed. 

Sept. 2012), http://www.aph.gov.au/About_Parliament/House_of_Representatives/Powers_practice_and_procedure/ 

Practice6/Practice6HTML?file=Chapter10§ion=04, archived at https://perma.cc/QQ3K-DKJB. 

4 “Under What Circumstances Would Standing Orders be Suspended and For What Purpose?”, PARLIAMENTARY

EDUCATION OFFICE, http://questions.peo.gov.au/questions/under-what-circumstances-would-standing-orders-besuspended-and-for-what-purpose/22 (last visited Apr. 11, 2017), archived at https://perma.cc/8CYZ-Y3NL. 

5 See Brief Guides to Senate Procedure, No. 5: Suspension of Standing Orders, PARLIAMENT OF AUSTRALIA, 

http://www.aph.gov.au/About_Parliament/Senate/Powers_practice_n_procedures/Brief_Guides_to_Senate_Procedur

e/No_5 (last reviewed Aug. 2015), archived at https://perma.cc/J6F8-DRXY. 

6 See Glossary, PARLIAMENT OF AUSTRALIA, http://www.aph.gov.au/Help/Glossary (last visited Apr. 11, 2017); 

ODGERS’ AUSTRALIAN SENATE PRACTICE, ch. 11, “Voting and Divisions: Special Majorities” (14th ed. 2016), 

http://www.aph.gov.au/About_Parliament/Senate/Powers_practice_n_procedures/Odgers_Australian_Senate_Practic

e/Chapter_11#h03, archived at https://perma.cc/VDP7-TX8U. 
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However, most motions to suspend standing orders are moved by a special type of notice called a 

“contingent notice” in order to avoid the need to obtain the agreement of an absolute majority of 

the house. Such motions only require the agreement of a simple majority.7

 In addition, other 

mechanisms (referred to as the “guillotine”) that do not require the agreement of an absolute 

majority are available to government ministers with respect to placing time limits on debates for 

bills that are declared urgent.8

Belarus 

In the Belarusian Parliament, debates on constitutional amendments can be stopped only if twothirds of the legislators vote to terminate further discussions.9

 

Czech Republic 

In the Chamber of Deputies, the lower house of the Czech Parliament, a supermajority vote 

might be needed for resolving procedural issues within individual parliamentary committees. 

According to section 36 of the Rules of Procedure of the Chamber of Deputies, a committee 

chairperson draws up the agenda and schedule (called “programme”) for each committee 

meeting. Once the programme has been approved, any resolution expanding its original content 

by introducing additional issues and any resolution changing the schedule time for discussion 

must be voted for by at least three-fifths of all committee members.10

Denmark 

In the Danish Folketinget (Parliament), the Formand (Speaker) leads the work and presides over 

the speaking schedule.11 He or she may change the schedule but must provide Parliament with a 

reason for doing so.12 The Speaker may also propose that a prolonged discussion in Parliament 

7

 See Brief Guides to Senate Procedure, No. 5: Suspension of Standing Orders, supra note 5. 

8 See Brief Guides to Senate Procedure, No. 17: Debating Legislation Under Time Limits, PARLIAMENT OF

AUSTRALIA, http://www.aph.gov.au/About_Parliament/Senate/Powers_practice_n_procedures/Brief_Guides 

_to_Senate_Procedure/No_17 (last reviewed Aug. 2015), archived at https://perma.cc/9WXU-KL3U; House of 

Representatives Infosheet 7: Making Laws, PARLIAMENT OF AUSTRALIA (Nov. 2016), http://www.aph.gov.au/ 

About_Parliament/House_of_Representatives/Powers_practice_and_procedure/00_-_Infosheets/Infosheet_7_-

_Making_laws, archived at https://perma.cc/VE3G-XDV4. 

9

 Reglament Palaty Predstavitelei Natsionalnogo Sobrania [Rules of Procedure of the House of Representatives of 

the National Assembly] No. 707-P5/VIII of Dec. 18, 2015, art. 172, available at http://www.pravo.by/document/? 

guid=3871&p0=H21500707 (Belr.), archived at https://perma.cc/7L72-6PKW. 

10 Jednací Řád Poslanecké Sněmovny [Rules of Procedure of the Chamber of Deputies], vyhláška 90 /1995 (Sb.) 

§ 36, available at https://www.psp.cz/docs/laws/1995/90_Index.html (Czech), archived at https://perma.cc/XC2DS5VR, English translation available at https://www.psp.cz/en/docs/laws/1995/90.html#s3, archived at https://perma 

.cc/245G-9QPF. 

11 Forretningsorden for Folketinget [Work Instruction for the Danish Parliament], as amended through Oct. 22, 

2015, § 4, http://www.ft.dk/Dokumenter/Publikationer/Folketinget/~/media/PDF/publikationer/Folketinget/Folk 

etingets _forretningsorden.ashx (Den.), archived at https://perma.cc/7QJE-PTP5. See also The Speaker, 

FOLKETINGET (Nov. 24, 2015), http://www.thedanishparliament.dk/About_the_Danish_Parliament/The_ 

Speaker.aspx (Den.), archived at https://perma.cc/8W5J-MSH8. 

12 Work Instruction for the Danish Parliament § 32 stk 3. 
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come to an end.13 Parliament then votes on this without prior discussions, but after a list of 

names of remaining speakers has been read.14 Discussions can also come to an end by seventeen 

parliamentary members (out of a maximum of 17915) requesting, in writing, that there be an end 

to discussions and that a vote be taken.16 

Half of the voting members in Parliament must be present for a vote to take place.17 Most 

proposals only require a simple majority.18 Departure from procedural rules may be undertaken, 

after a proposal from the Speaker or a written request by seventeen members of Parliament, 

provided that three-fourths of the present voting members approve it.19 

Hungary 

In the Hungarian Parliament, a supermajority (four-fifths of the Parliament’s members that are 

present) is required to derogate from any established procedural provision and proceed in a way 

not prescribed by the Parliamentary Rules of Procedure to resolve a specific issue.20 Voting by 

two-thirds of the members of Parliament present is required to start debates on an urgent 

matter.21 Changes to the committee meeting agenda require a vote by two-thirds of the 

committee members present.22 

Kosovo 

In Kosovo, a supermajority (two-thirds of the members of Parliament present) is required to 

deviate from the Rules of Procedure,23 and a qualified majority vote (two-thirds of all members 

of Parliament) is required for amending the Rules of Procedure.24 

 

13 Id. § 31. 

14 Id. 

15 DANMARK RIGES GRUNDLOV (GRUNDLOVEN) [DANISH CONSTITUTION] §§ 3, 28, https://www.retsinformation.dk/ 

Forms/R0710.aspx?id=45902 (Den.), archived at https://perma.cc/A64F-3J6B.

16 Id. 

17 DANISH CONSTITUTION § 50; Work Instruction for Danish Parliament § 33. 

18 Work Instruction for Danish Parliament § 33. 

19 Id. § 42. 

20 10/2014. (II. 24.) OGY Határozat Egyes Házszabályi Rendelkezésekről [Resolution on Certain Provisions of the 

Rules of Procedure], Közlönyállapot § 65, available at https://mkogy.jogtar.hu/?page=show&docid=a14h0010.OGY

(Hung.), archived at https://perma.cc/FCH3-BBXQ, English translation available at http://www.parlament.hu/ 

documents/125505/138409/Resolution+on+certain+provisions+of+the+Rules+of+Procedure/968f2e08-f740-4241-

a87b-28e6dc390407, archived at https://perma.cc/AX9R-FH5A. 

21 Id. § 60. 

22 Id. § 114. 

23 Rregullore e Kuvendit të Republikës së Kosovës [Rules of Procedure of the Assembly of the Republic of 

Kosovo], Statute Nr. 03-V-304 of Apr. 29, 2010, art. 84, available at http://www.kuvendikosoves.org/common/ 

docs/Rr_ K_RK_29_04_2010_1.pdf (Kos.), archived at https://perma.cc/UZ9P-K6XJ, English translation available 

at http://www.kuvendikosoves.org/common/docs/Rr_K_RK_29_04_2010_2.pdf, archived at https://perma.cc/ 

V2Q7-AN3E. 
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Lithuania 

If an opposition political group insists on continuing debate, discussions can be stopped if twothirds of the members of the Seimas (the Lithuanian Parliament) participate in the sitting vote to 

terminate the debate.25

Romania 

Procedures of the Senate, the upper chamber of the Romanian Parliament, regulate, among other 

issues, the debates in individual Senate committees. In order to impose a time limit on the length 

of debates or speeches of individual Senate members, a vote of two-thirds of the committee 

members is required. The committee may decide to limit the length of debates or speeches at the 

suggestion of any member.26 

South Korea 

Speaking time for a National Assembly (NA) member is determined by the Speaker and is 

generally up to fifteen minutes.27 However, when an NA member submits to the Speaker a letter 

of request of debate on an agenda without a time limit (filibuster) and with the signatures of onethird or more incumbent NA members, the Speaker must implement the filibuster.28 Then, an 

NA member may submit to the Speaker a motion for termination of the filibuster signed by at 

least one-third of all incumbent NA members.29 The motion is decided, without debate, by a 

secret vote twenty-four hours after the submission of the motion. The affirmative votes of at 

least three-fifths of all incumbent NA members are required for termination of the filibuster.30 

Switzerland 

Current Swiss law does not require a supermajority vote to end debate on a motion to proceed to 

a bill (introductory debate) or to end debate on a bill (detailed consideration). The Standing 

24 Id. art. 81(3). 

25 Lietuvos Respublikos Seimo Statutas [Statute on the Seimas of the Republic of Lithuania], Law No. I-399 of 

February 17, 1994, art. 108.7, available at https://e-seimas.lrs.lt/portal/legalAct/lt/TAD/TAIS.5734?jfwid=39x 

432mh7 (Lith.), archived at https://perma.cc/9NDW-7G67, English translation available at https://e-seimas.lrs. 

lt/portal/legalAct/lt/TAD/e495a6e2b60611e5be9bf78e07ed6470?jfwid=39x432mh7, archived at

https://perma.cc/HY25-RT6M. 

26 Regulamentul Senatulu [Senate Procedures Manual], MONITORUL OFICIAL No. 948 of Oct. 25, 2005, art. 63, 

available at https://www.senat.ro/pagini/reg_sen/reg_senat_2016.htm (Rom.), archived at https://perma.cc/4QYBV3WP. 

27 National Assembly Act, Act No. 4010, June 15, 1988, amended by Act No. 6266, Feb. 16, 2000, art. 104, para. 1 

(S. Kor.). 

28 Id. art. 106-2, para. 2, inserted by Act No. 11453, May 25, 2012 (S. Kor.). 

29 Id. para. 5, inserted by Act No.11453, May 25, 2012 (S. Kor.). 

30 Id. para. 6, inserted by Act No.11453, May 25, 2012 (S. Kor.). 
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Orders of the National Council of 1920 required a two-thirds majority to end debate on a bill.31 

The rule was abolished when the Standing Orders were repealed and re-promulgated in 1974.32

31 Geschäftsreglement des Nationalrates [GRN] [Standing Orders of the National Council] [SO-NC], Dec. 17, 1920, 

AMTLICHE SAMMLUNG [AS] [CHRONOLOGICAL COLLECTION OF LAWS] 3, 12 (1921), art. 69, para. 2 at 173, https:// 

biblio.parlament.ch/e-docs/95123_1929.pdf (Switz.), archived at http://perma.cc/NS4A-XSQ9. 

32 GRN SO-NC, Oct. 4, 1974, AS 1645 (1974) (Switz.).