How does a bill become a law?

A bill becomes law through six stages: introduction by a member of Congress, committee review and hearings, floor debate and vote in the originating chamber, passage by the second chamber, conference committee reconciliation (if needed), and presidential signature. The President can veto a bill, but Congress can override a veto with a two-thirds vote in both chambers.

What percentage of bills become law?

Only about 5-10% of introduced bills become law. Most bills die in committee without ever receiving a floor vote. In a typical Congress, over 10,000 bills may be introduced but only 300-500 are enacted.

How a Bill Becomes a Law

The step-by-step journey from introduction to presidential signature — including the stage where most bills quietly die.

The Six Stages

Introduction A member of Congress introduces a bill in their chamber (House or Senate). The bill receives an official number (e.g., H.R. 1 or S. 1) and is referred to the relevant committee. Only members of Congress can formally introduce legislation.
Committee Review The assigned committee — and often a subcommittee — reviews the bill, holds hearings with expert witnesses, and may amend the text. The committee then votes on whether to report the bill to the full chamber. This is where most bills die: committees receive far more bills than they can act on, and many are never scheduled for a hearing.
Floor Debate & Vote If the committee reports the bill favorably, it goes to the full chamber for debate and a vote. In the House, the Rules Committee sets debate terms. In the Senate, any senator can filibuster to extend debate unless 60 senators vote for cloture. The chamber votes, and if a majority votes Yea, the bill passes.
Second Chamber The bill moves to the other chamber (House to Senate or vice versa), which repeats the entire process: committee review, floor debate, and vote. The second chamber may pass the bill as-is, amend it, or reject it.
Conference Committee If both chambers pass different versions, a conference committee — made up of members from both the House and Senate — reconciles the differences. The final version goes back to both chambers for an up-or-down vote.
Presidential Action The President has three options: sign the bill into law, veto it, or take no action. If the President vetoes, Congress can override with a two-thirds vote in both chambers. If the President takes no action for 10 days while Congress is in session, the bill becomes law automatically.

The Reality: Most Bills Don't Make It

Only about 5-10% of introduced bills become law. In a typical two-year Congress, over 10,000 bills may be introduced but only 300-500 are enacted. The rest die in committee, fail a floor vote, or stall between chambers.

This is why tracking committee actions and bill status matters. You can follow any bill's progress through the Bill Tracker and see roll-call votes as they happen in the Bill Feed.

Types of Legislation

Bills (H.R. / S.) — The most common form. Require passage by both chambers and presidential signature.
Joint Resolutions (H.J.Res. / S.J.Res.) — Similar to bills, also require presidential signature. Used for constitutional amendments (which require two-thirds of both chambers instead).
Concurrent Resolutions (H.Con.Res. / S.Con.Res.) — Express the sentiment of both chambers. Do not require presidential signature and do not have the force of law.
Simple Resolutions (H.Res. / S.Res.) — Address matters within a single chamber only, such as rules changes or committee appointments.

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