What is a bill?

A bill is a proposed law introduced in the U.S. Congress for consideration. Bills can be introduced in either the House of Representatives or the Senate (with the exception of revenue-raising bills, which must originate in the House under Article I, Section 7 of the Constitution). Bills introduced in the House are designated H.R. followed by a number; bills introduced in the Senate are designated S. followed by a number. The numbers are assigned in the order bills are introduced in each chamber during each two-year Congress.

The First Congress, in 1789-1791, considered just a few hundred bills. Recent Congresses have seen more than 10,000 bills introduced over each two-year session, though the vast majority never become law. Most bills die in committee without ever receiving a committee vote, let alone a full chamber vote.

Bills can come from many sources. Members of Congress draft bills based on their own policy ideas, requests from constituents, ideas from interest groups, model legislation provided by think tanks or industry associations, recommendations from executive branch agencies, or directives from leadership. The President cannot introduce bills directly but often proposes legislative ideas and works with congressional allies to introduce bills carrying out the President's agenda.

Bills go through several stages on their way to becoming law. After introduction, a bill is referred to one or more standing committees with jurisdiction over the subject matter. The committee may hold hearings to gather information, mark up the bill (consider amendments), and vote on whether to recommend the bill to the full chamber. If the committee approves the bill, it is reported to the full chamber for floor consideration. The full chamber debates the bill and may amend it before voting.

Once the House and Senate adopt identical text, the bill goes to the President for signature or veto. If the chambers pass different versions, a conference committee made up of members from both chambers resolves the differences before the bill returns to each chamber for a final vote. The President can sign the bill into law, veto it (which Congress can override with a two-thirds vote in both chambers), or take no action (in which case the bill becomes law after ten days if Congress is in session, or is pocket vetoed if Congress adjourns).

The full process can take days, weeks, months, or years depending on the complexity and political contentiousness of the bill. Major legislation typically goes through many revisions and negotiations before final passage.