How a Bill Becomes a Law

A bill is generally legislation that involves the appropriation of money. As soon as a bill is presented, it receives a bill number, which remains with the bill until it becomes a law or until the bill dies in Congress. Senate bill numbers begin with "S." and House numbers with "H.R." Many bills are introduced in Congress, but few actually become laws.

Joint resolutions, traditionally, are used to amend the Constitution or to continue an appropriation. They follow the same path as a bill (except for Constitutional amendments) and when passed, have the force of law. While in the legislative process, they are given joint resolution numbers (S. J. Res. and H. J. Res.).

The remaining types of resolutions, concurrent and simple, do not have the effect of law. Concurrent resolutions are used for issues that affect the operation of both chambers or for expressing "the sense of Congress". A simple resolution generally deals with rules and procedures of the chamber in which it is introduced and is not sent to the other chamber for action. These resolutions carry the designation of S.Con.Res. and H. Con. Res. for concurrent resolutions; and S. Res. and H. Res. for simple resolutions.

THE PROCESS

After the bill or joint resolution is introduced, it is assigned to a committee for study, discussion and possible revision. The committee may also reject the bill, in which case, the bill dies. Committees hold hearings on the bills they wish to consider either in the full committee or a subcommittee. The hearings are generally for fact finding and may involve private citizens, agencies affected by the bill, experts or special interest groups. Committee prints may be prepared for the use of the committee members. After the information has been gathered, the bill is "marked up"; that is, amended or even rewritten.

If the committee approves the mark up, a report is produced for the entire chamber that details the purpose and scope of the bill and explains any amendments made to the bill. These reports are designated S. Rept. or H. Rept. and given a number.

When the bill is reported out of committee, it is considered by the entire house. Debate then begins, amendments may be added and a vote is taken. Votes are taken in different ways in the House and Senate. There are four different types of votes in the House: voice vote, division vote, standing vote and recorded (electronic) vote. The Senate uses voice and roll-call votes, and occasionally, standing votes. Only recorded votes in the House and roll-call votes in the Senate are available for a member's record.

If passed, the bill then moves to the other house where the same procedure is used. If the bill is revised at that point, or if similar bills are passed in both houses at the same time, the bill is referred to a conference to work out any differences. A bill must pass both houses in identical form in order to be passed on to the President for signing.

The conference committee works out a compromise so that the bill is acceptable to both houses. A conference report is prepared and the bill is sent again to the floors of both houses for approval. If the bill passes, it is sent to the President who has ten days to take action on the bill. The President may sign it, thereby making it a law, or veto it.

The new law is given the designation of "Public Law Number" (P.L. No.) and is printed first as a "slip law", that is the law in pamphlet form. At the end of the legislative session, all new laws are published together in United States Statutes At Large. The statutes, or laws, are then grouped by subject, or codified, with the other permanent laws, in the U.S. Code.

A vetoed bill returns to Congress where it can die from no further action taken or be voted on again. Only a 2/3 majority of both houses can override a presidential veto. If the bill is overridden, it does not return to the president, but automatically becomes law.

A bill must complete the entire process in one legislative session. If the session ends before the process is completed, the bill must be reintroduced in the next session and the procedure started again.

For more complete information about the legislative process, see: Congressional Quarterly's Guide to Congress. Ref. JK 1021 .C565 and How Our Laws Are Made .