How a Bill Becomes a Law: The Legislative Process Explained
Last updated: January 15, 2026
The process of turning an idea into federal law involves multiple steps through both chambers of Congress and the President. While it can seem complicated, the system is designed to ensure careful deliberation and prevent hasty legislation.
The Legislative Process: Step by Step
Step 1: Bill Introduction
Any member of Congress can introduce a bill. In the House, a representative drops the bill into the "hopper" (a wooden box) on the House floor. In the Senate, a senator must be recognized by the presiding officer to introduce a bill.
Note: Only members of Congress can introduce bills. While anyone can draft legislation or suggest ideas, a member must officially sponsor it.
Step 2: Committee Assignment
The bill is assigned to a committee based on its subject matter (agriculture, transportation, judiciary, etc.). Most legislative work happens in committees, where members have specialized knowledge in specific policy areas.
Important: Most bills die in committee and never advance further. Committees act as gatekeepers, determining which bills deserve full consideration.
Step 3: Committee Review and Hearings
The committee studies the bill in detail. This may include:
- Holding public hearings with expert testimony
- Requesting reports from government agencies
- Debating and amending the bill (called "marking up")
- Voting on whether to send it to the full chamber
Step 4: Floor Debate and Vote (First Chamber)
If the committee approves the bill, it goes to the full House or Senate floor for debate. Members discuss the bill's merits, propose amendments, and eventually vote.
House vs. Senate: The House has strict time limits and rules. The Senate allows unlimited debate (leading to filibusters), giving individual senators more power to delay or block legislation.
Step 5: Second Chamber Consideration
After passing one chamber, the bill moves to the other (House to Senate, or vice versa). The second chamber goes through the same process: committee review, possible amendments, floor debate, and a vote.
Critical requirement: Both chambers must pass the exact same version of the bill. If the second chamber makes any changes, the bill must go back to the first chamber for approval of those changes.
Step 6: Conference Committee (if needed)
If the House and Senate pass different versions of the bill, a conference committee with members from both chambers meets to reconcile the differences and create a compromise version. This compromise must then be approved by both chambers again.
Step 7: Presidential Action
Once both chambers pass the identical bill, it goes to the President, who has four options:
- Sign the bill — It becomes law immediately.
- Veto the bill — The bill is sent back to Congress. Congress can override the veto with a two-thirds vote in both chambers (rare but possible).
- Take no action for 10 days — If Congress is in session, the bill automatically becomes law without the President's signature.
- Pocket veto — If Congress adjourns within 10 days and the President doesn't sign, the bill dies (cannot be overridden).
Step 8: Law Implementation
After the President signs the bill (or Congress overrides a veto), it becomes a public law. Federal agencies then create regulations and procedures to implement and enforce the new law.
Key Facts About Legislation
- Success rate is low: Of the thousands of bills introduced each Congress, only about 5-10% become law.
- Revenue bills must start in the House: By constitutional requirement, all bills for raising revenue (taxes) must originate in the House of Representatives.
- Either chamber can initiate other bills: For non-revenue legislation, bills can start in either the House or Senate.
- Companion bills are common: Often, identical or similar bills are introduced in both chambers simultaneously to speed up the process.
- Bills must pass in the same 2-year Congress: If a bill doesn't pass both chambers within the 2-year congressional session, it dies and must be reintroduced in the next Congress.
Why the Process Is Deliberately Slow
The Founders designed this multi-step process to prevent hasty or poorly-considered legislation. By requiring approval from multiple committees, both chambers of Congress, and the President, the system ensures broad consensus and careful deliberation.
While this can frustrate those seeking quick change, it also prevents the passage of laws that lack widespread support. The system prioritizes stability and thorough vetting over speed.
Track Your Representatives' Legislative Work
Want to see who represents you and when their terms end? Use our interactive map to explore your congressional delegation. You can also visit Congress.gov to search for specific bills and track their progress.
Frequently Asked Questions
How does a bill become a law?
A bill becomes law through these steps: (1) A member of Congress introduces it, (2) A committee reviews and votes on it, (3) The full House or Senate debates and votes, (4) The other chamber repeats the process, (5) Both chambers pass the identical version, (6) The President signs it. If the President vetoes, Congress can override with a two-thirds vote in both chambers.
Can anyone introduce a bill in Congress?
No, only members of Congress can officially introduce bills. In the House, any representative can introduce a bill. In the Senate, any senator can introduce a bill. However, anyone can draft legislation or work with a member to get a bill introduced.
What happens if the President vetoes a bill?
When the President vetoes a bill, it returns to Congress. Congress can override the veto by voting again—if two-thirds of both the House and Senate vote to override, the bill becomes law without the President's signature. Veto overrides are rare and require strong bipartisan support.
How many bills actually become laws?
Only about 5-10% of bills introduced in Congress become law. Thousands of bills are introduced each two-year congressional session, but most die in committee without receiving a vote. This reflects the difficulty of achieving consensus and the thorough vetting required.
Do both the House and Senate have to pass a bill?
Yes, both the House and Senate must pass the exact same version of a bill before it can go to the President. If one chamber makes changes to a bill passed by the other, it must go back for approval. Sometimes a conference committee reconciles different versions.