How a Bill Becomes Law

Before a bill can become law, it must go through the various stages of the legislative process and be passed in identical form by a majority of both the House of Representatives and the Senate. The Governor of a state or the President, depending on whether the issue is state or federal, must then sign it. If the Governor or President vetoes the legislation, it cannot become law unless Congress or a state assembly overrides the veto by passing it again in each body by a two-thirds majority.

The following exemplifies the normal stages of the legislative process in Congress. There are more complicated, as well as simpler, routes. Thousands of bills are introduced in each session of Congress, but few become law. Most never get beyond the "bill referral" stage.

Bill Introduction

Only a member of the House of Representatives or Senate can introduce a bill, or proposed law. However, ideas for bills and draft legislation can come from a wide range of sources, including advocates for specific causes.

Bill Referral

After a bill is introduced, it is referred to the committee with jurisdiction over the issue. Bills can be referred to multiple committees if the content of the legislation applies to more than one committee.

Subcommittee Action

The appropriate subcommittee of the committee of jurisdiction holds hearings, evaluates the proposed legislation, makes changes and recommends action by the full committee. Occasionally, this step is skipped and the bill goes directly to the full committee for action.

Committee Action

The committee may also hold hearings to gather additional information about the bill. The committee then decides on the final content and language of the bill and writes a report describing the intent and extent of the legislation. If the committee approves the proposal, it is sent to the House of Representatives or the Senate for action. Failure of a committee (or subcommittee) to act on a bill usually kills the bill.

Leadership Scheduling

The leadership of the House of Representatives and the Senate determine if and when the bill will be brought to the House and Senate floors for debate and vote. In the House, the House Rules Committee can limit debate and amendments during floor consideration. The Senate normally has a greater ability than the House to debate and amend bills.

Floor Action (Initial)

Members of the House of Representatives and/or the Senate debate the bill, may amend it, then vote for or against the measure. If the bill passes, it is referred to the other legislative body for consideration there. If a similar bill has passed the other body, the bill is referred directly to a House-Senate conference committee to work out a compromise between the version passed by the House and the version passed by the Senate. Non-controversial differences between bills can often be worked out between the House and Senate without the need for a conference committee.

Conference Committee

A committee of members from the House of Representatives and the Senate works out the differences between House and Senate-passed versions of the legislation. The House and Senate must approve identical versions of the bill before it can be sent to the President for signature.

Floor Action (Post Conference)

Both the House of Representatives and the Senate vote on the compromise version of the legislation (conference report) agreed to by the conference committee. No amendments are permitted. If both bodies approve the conference report, the legislation is sent to the President.

Presidential Action

If the President signs the bill, it becomes law. If the President does not sign the bill within 10 days and Congress is in session, the bill becomes law without his signature. If the President vetoes the bill within the 10-day period, it is returned to Congress with a statement on the reasons for the rejection. If Congress chooses, it may attempt to override the President's veto. A two-thirds majority in each body is needed to override a veto. If the President takes no action on a bill after Congress has ended its second session, the lack of action becomes a "pocket veto".

The Importance of Relationships with Congressional Staff

Commonly Used Titles and Job Functions of Congressional Staff

Opportunities for Grassroots Impact