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Congressional Procedure
A Practical Guide to the Legislative Process in the U.S. Congress: The House of Representatives and Senate Explained
By Richard A. Arenberg
Additional Resources
Pocket Constitution
Previous: Chapter 1. Congress and the Constitution
Chapter 2. Introduction of Legislation
A. Introduction
B. Why Submit Legislation?
C. Drafting Legislation
D. Forms of Legislation
E. Bills
F. Joint Resolutions
G. Concurrent Resolutions
H. Simple Resolutions
I. Sponsorship and Cosponsorship
J. Submitting Legislation
K. Introductory Statements
L. Referral to Committee
M. Senate Rule XIV
N. Regular Order
O. Legislative Process Flowchart
Chapter 2. Introduction of Legislation
2. A. Introduction
- The Constitutional Convention: A Narrative History from the Notes of James Madison
- Pocket Constitution
- Constitution, Article I, Section 1
- Bills / Measure / Passed (CongressionalGlossary.com)
- “Enactment of a Law”; by Robert B. Dove, Parliamentarian, United States Senate, February 1997 (33-page PDF
) - “How Our Laws Are Made,” July 24, 2007, House Document 110–49 (72-page PDF)
Overview of the Legislative Process
- Lesson Plans: The Legislative Process, National Archives
- Resume of Congressional Activity, Senate
- Legislative Process Flowchart / How a Bill Becomes Law
2. B. Why Submit Legislation?
- Bills introduced “by request” on Congress.gov
- By Request (CongressionalGlossary.com)
- Private Calendar / Private Bill (CongressionalGlossary.com)
- Law / Public Law / Private Law (CongressionalGlossary.com)
- Sponsorship and Cosponsorship of House Bills, CRS Report RS22477 (9-page PDF)
- Introduction to the Legislative Process in the U.S. Congress, CRS Report R42843 (18-page PDF)
- The Legal and Practical Effects of Private Immigration Legislation and Recent Policy Changes, CRS Legal Sidebar (3-page PDF)
Congress.gov: Introduction and Referral of Bills
- Procedural Analysis of Private Laws Enacted: 1986-2013, CRS Report RS22450 (12-page PDF)
- Calendars of the House of Representatives, CRS Report 98-437 (5-page PDF)
- Continuing Resolutions: Overview of Components and Recent Practices, CRS Report R42647 (38-page PDF)
- “Legislative Drafter’s Deskbook,” by Tobias Dorsey
2. C. Drafting Legislation
- “Legislative Drafter’s Deskbook,” by Tobias Dorsey
- Law / Public Law / Private Law (CongressionalGlossary.com)
- Drafting Effective Federal Legislation and Amendments in a Nutshell, Capitol Learning Audio Course
- House Office of the Legislative Counsel
- Senate Office of the Legislative Counsel
2. D. Forms of Legislation
- Congress.gov
- Understanding the 4 Basic Types of Legislation
- Bills / Measure / Passed (CongressionalGlossary.com)
- Joint Resolution (CongressionalGlossary.com)
- Concurrent Resolution (CongressionalGlossary.com)
- Law / Public Law / Private Law (CongressionalGlossary.com)
- Simple Resolution (CongressionalGlossary.com)
- Bills and Resolutions: Examples of How Each Kind Is Used, CRS Report 98-706 (6-page PDF)
I’m Just a Bill Music Video
- Introduction to the Legislative Process in the U.S. Congress, CRS Report R42843 (18-page PDF)
- How Special Rules Regulate Calling up Measures for Consideration in the House, CRS Report 98-354 (3-page PDF)
- “Bills, Resolutions, Nominations, and Treaties: Characteristics, Requirements, and Uses,” CRS Report 98-728 (3-page PDF
) - “Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use,” CRS Report R46603 (14-page PDF)
2. E. Bills
- Bills / Measure / Passed (CongressionalGlossary.com)
- Law / Public Law / Private Law (CongressionalGlossary.com)
- Pocket Veto (CongressionalGlossary.com)
- President of the Senate / President Pro Tempore (CongressionalGlossary.com)
- House of Representatives
- Senate
- Pocket Constitution
- Constitution, Article I, Section 7
- Congress.gov
- Bills and Resolutions: Examples of How Each Kind Is Used, CRS Report 98-706 (6-page PDF)
- “Bills, Resolutions, Nominations, and Treaties: Characteristics, Requirements, and Uses,” CRS Report 98-728 (3-page PDF)
- “Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use,” CRS Report R46603 (14-page PDF)
How a Bill Becomes a Law: Crash Course Government and Politics #9
- The Committee Markup Process in the House of Representatives, CRS Report RL30244 (29-page PDF)
- Resolving Legislative Differences in Congress: Conference Committees and Amendments Between the Houses, CRS Report 98-696 (40-page PDF)
- Senate Rule XIV Procedure for Placing Measures Directly on the Senate Calendar, CRS Report RS22309 (8-page PDF)
- Introducing a House Bill or Resolution, CRS Report R44001 (13-page PDF)
2. F. Joint Resolutions
- Pocket Constitution
- Constitution, Article V
- Joint Resolution (CongressionalGlossary.com)
- Joint Resolutions, 115th Congress, Congress.gov
- Bills and Resolutions: Examples of How Each Kind Is Used, CRS Report 98-706 (6-page PDF)
- Resolving Legislative Differences in Congress: Conference Committees and Amendments Between the Houses, CRS Report 98-696 (40-page PDF)
- Senate Rule XIV Procedure for Placing Measures Directly on the Senate Calendar, CRS Report RS22309 (8-page PDF)
- Continuing Resolutions: Overview of Components and Recent Practices, CRS Report R42647 (38-page PDF)
- Continuing Resolutions: CRs in a Nutshell, OMB PDF (43-page PDF)
- Automatic Continuing Resolutions: Background and Overview of Recent Proposals, CRS Report R41948 (24-page PDF)
- Declarations of War and Authorizations for the Use of Military Force: Historical Background and Legal Implications, CRS Report RL31133 (120-page PDF)
- The Congressional Review Act: Frequently Asked Questions, CRS Report R43992 (33-page PDF)
- “The Congressional Review Act (CRA): A Brief Overview,” CRS In Focus IF10023 (5-page PDF)
- “Major” Obama Administration Rules Potentially Eligible to be Overturned under the Congressional Review Act in the 115th Congress, CRS Memorandum November 17, 2016 (9-page PDF)
- “Congressional Review Act Issues for the 117th Congress: The Lookback Mechanism and Effects of Disapproval,” CRS Report R46690 (20-page PDF)
- Federal Holidays: Evolution and Current Practices, CRS Report R41990 (17-page PDF)
2. G. Concurrent Resolutions
- Pocket Constitution
- Constitution, Article I, Section 5
- Adjourn for More than Three Days (CongressionalGlossary.com)
- Adjournment sine die (CongressionalGlossary.com)
- Concurrent Resolution (CongressionalGlossary.com)
- Joint Session / Joint Meeting (CongressionalGlossary.com)
- Concurrent Resolutions, Congress.gov
- Bills and Resolutions: Examples of How Each Kind Is Used, CRS Report 98-706 (6-page PDF)
- “Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use,” CRS Report R46603 (14-page PDF)
Markup of the Concurrent Resolution on the Budget for Fiscal Year 2017
- “Sense of” Resolutions and Provisions, CRS Report 98-825 (5-page PDF)
- Introducing a House Bill or Resolution, CRS Report R44001 (13-page PDF)
- Sessions, Adjournments, and Recesses of Congress, CRS Report R42977 (31-page PDF)
- The Congressional Appropriations Process: An Introduction, CRS Report R42388 (28-page PDF)
- Congressional Budget Resolutions: Historical Information, CRS Report RL30297 (47-page PDF)
- The Budget Reconciliation Process: Stages of Consideration, CRS Report R44058 (16-page PDF)
2. H. Simple Resolutions
- House Rules Committee
- Senate Rules and Procedure
- Quorum (CongressionalGlossary.com)
- Simple Resolution (CongressionalGlossary.com)
- The Legislative Process on the House Floor: An Introduction, CRS Report 95-563 (18-page PDF)
- “Sense of” Resolutions and Provisions, CRS Report 98-825 (5-page PDF)
- House Resolutions of Inquiry, CRS Report RL31909 (29-page PDF)
- “Resolutions of Inquiry in the House,” CRS Insight IN10661 (5-page PDF)
- Introducing a House Bill or Resolution, CRS Report R44001 (13-page PDF)
- Introducing a Senate Bill or Resolution, CRS Report R44195 (11-page PDF)
- Congressional Consideration of Resolutions to “Censure” Executive Branch Officials, CRS Report IN10774 (3-page PDF)
- Rules and Practices Governing Consideration of Revenue Legislation in the House and Senate, CRS Report R41408 (26-page PDF)
- Special Rules and Waivers of House Rules, CRS Report 98-433 (5-page PDF)
- The First Day of a New Congress: A Guide to Proceedings on the Senate Floor, CRS Report RS20722 (14-page PDF)
- Offices and Officials in the Senate: Roles and Duties, CRS Report R43532 (20-page PDF)
- “Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use,” CRS Report R46603 (14-page PDF)
2. I. Sponsorship and Cosponsorship
- Bills Introduced / Bills Referred / Sponsor (CongressionalGlossary.com)
- Cosponsor (CongressionalGlossary.com)
- Sponsorship and Cosponsorship of House Bills, CRS Report RS22477 (9-page PDF)
- Sponsorship and Cosponsorship of Senate Bills, CRS Report 98-279 (8-page PDF)
- House: Sponsors and Cosponsors, Congress.gov
- Senate: Sponsors and Cosponsors, Congress.gov
- Legislative Planning: Considerations for Congressional Staff, CRS Report RS20991 (9-page PDF)
- “Dear Colleague” Letters: A Brief Overview, CRS Report RS21667 (6-page PDF)
- “Dear Colleague” Letters in the House of Representatives: Past Practices and Issues for Congress, CRS Report R44768 (24-page PDF)
- “Dear Colleague” Letters: Current Practices, CRS Report RL34636 (11-page PDF)
- Dear Colleague Letter, Congressional Glossary
- Dear Colleague Letters
2. J. Submitting Legislation
- Hopper (CongressionalGlossary.com)
- Committee of the Whole (CongressionalGlossary.com)
- Floor Manager (CongressionalGlossary.com)
- President of the Senate / President Pro Tempore (CongressionalGlossary.com)
- Quorum Call (Congressional Glossary)
- Well (CongressionalGlossary.com)
- Introducing a House Bill or Resolution, CRS Report 98-458 (6-page PDF)
- Introducing a Senate Bill or Resolution, CRS Report R44195 (11-page PDF )
- Sponsorship and Cosponsorship of House Bills, CRS Report RS22477 (9-page PDF)
- Researching Current Federal Legislation and Regulations: A Guide to Resources for Congressional Staff, CRS Report RL33895 (17-page PDF)
- The Legislative Process on the Senate Floor: An Introduction, CRS Report 96-548 (20-page PDF)
- “The Decline of Lawmaking Reflects a Diminished Congress,” by William Yeatman, CATO, May 10, 2021
2. K. Introductory Statements
-
Introducing a House Bill or Resolution, CRS Report 98-458 (6-page PDF)
- Introducing a Senate Bill or Resolution, CRS Report R44195 (11-page PDF)
- Statements of Introduction in the Congressional Record
- An Overview of the Congressional Record and Its Predecessor Publications: A Research Guide, Law Librarians’ Society of Washington, DC
- About the Congressional Record, Congress.gov
2. L. Referral to Committee
- Rules of the House of Representatives
- Rules Of The Senate
- Bills / Measure / Passed (CongressionalGlossary.com)
- Precedents of the House of Representatives / Cannon’s / Deschler’s / Hinds’ / House Practice (CongressionalGlossary.com)
- Refer / Referral (CongressionalGlossary.com)
- “Committee Jurisdiction and Referral in the Senate,” CRS Report R46815 (13-page PDF)
- House Committee Jurisdiction and Referral: Rules and Practice, CRS Report 98-175 (3-page PDF)
Congress.gov: Committee Consideration
- Introduction to the Legislative Process in the U.S. Congress, CRS Report R42843 (18-page PDF)
- Senate Rules Affecting Committees, CRS Report 98-311 (13-page PDF)
- Bypassing Senate Committees: Rule XIV and Unanimous Consent, CRS Report RS22299 (17-page PDF)
2. M. Senate Rule XIV
- Standing Rules of the Senate
- Legislative Day (CongressionalGlossary.com)
- Precedents of the House of Representatives / Cannon’s / Deschler’s / Hinds’ / House Practice (CongressionalGlossary.com)
- Reading of Bills (CongressionalGlossary.com)
- The Legislative Process on the Senate Floor: An Introduction, CRS Report 96-548 (20-page PDF)
- Bypassing Senate Committees: Rule XIV and Unanimous Consent, CRS Report RS22299 (17-page PDF)
- Senate Rule XIV Procedure for Placing Measures Directly on the Senate Calendar, CRS Report RS22309 (8-page PDF)
- Senate Rules Restricting the Content of Conference Reports, CRS Report RS22733 (9-page PDF)
- How Measures Are Brought to the Senate Floor: A Brief Introduction, CRS Report RS20668 (10-page PDF)
- Minority Rights and Senate Procedure, CRS Report RL30850 (15-page PDF)
- Senate Rules Affecting Committees, CRS Report 98-311 (13-page PDF)
- “Committee Jurisdiction and Referral in the Senate,” CRS Report R46815 (13-page PDF)
- The Office of the Parliamentarian in the House and Senate, CRS Report RS20544 (4-page PDF)
2. N. Regular Order
- Appropriation Act / Appropriation Bill / Continuing Resolution / Continuing Appropriations (CongressionalGlossary.com)
- Omnibus Bill (CongressionalGlossary.com)
- Continuing Resolutions: Overview of Components and Recent Practices, CRS Report R42647 (38-page PDF)
- The “Regular Order”: A Perspective, CRS Report R46597 (67-page PDF)
- Restoring regular order in congressional appropriations, by Peter Hanson, Brookings, November 2015
- Points of Order, Rulings, and Appeals in the Senate, CRS Report 98-306 (7-page PDF)
David Hawkings’ Whiteboard: What is Regular Order?
- Continuing Resolutions: CRs in a Nutshell, OMB, (43-page PDF)
- Automatic Continuing Resolutions: Background and Overview of Recent Proposals, CRS Report R41948 (24-page PDF)
- Continuing Resolutions and Other Budget Uncertainties Present Management Challenges, GAO (GAO-18-368T) (12-page PDF)
- Omnibus Appropriations Acts: Overview of Recent Practices, CRS Report RL32473 (19-page PDF)
2. O. Legislative Process Flowchart
Next: Chapter 3. Committees
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