Legislative Process

A bill is the core form of legislation that can create, change, or repeal law. While only legislators can file bills, the ideas behind them often come from constituents, advocacy groups, or studies conducted between sessions. Much of the drafting is done by staff at the Texas Legislative Council, who specialize in turning policy ideas into precise legal language.

When filed, a bill is read for the first time and referred to a committee by the Speaker of the House or the Lieutenant Governor. The first 60 days of the session are the main window for filing bills; after that, only emergency measures or supermajority-approved bills may be filed. This deadline reflects the Legislature’s compressed 140-day schedule and ensures lawmakers focus on the most urgent priorities.

Committees are the gatekeepers. They hold hearings, invite testimony, and determine whether a bill is ready for wider debate. Most bills never make it out of committee — a reality that underscores how concentrated legislative power can be. Bills that advance carry with them fiscal notes, analyses, and amendments. In the House, they then move to a calendars committee; in the Senate, they’re added to the regular order of business.

In the House, bills are organized by type and priority across several calendars. In the Senate, most bills must appear on the Intent Calendar, and a 3/5 vote is required to suspend the regular order of business. This procedural hurdle ensures consensus, though it also concentrates power in leadership.

Bills must be read three times on separate days. Debate and amendments usually occur on second reading, while third reading is for final passage. This stepwise process is designed to prevent hasty lawmaking.

If a bill passes one chamber, it is “engrossed” with all amendments incorporated and sent to the other, where the process repeats. If both chambers pass the same version, the bill advances. If not, all differences must be resolved before it can move on.

When the House and Senate disagree, a conference committee — five members from each chamber — is appointed. These committees are limited to reconciling differences between the two versions. Their report cannot be amended on the floor: it must be accepted or rejected in full. This structure forces a compromise that both chambers can accept.

Once both chambers approve the same bill, it is “enrolled,” signed by the presiding officers, and sent to the governor. The governor may:

• Sign the bill — it becomes law.
• Veto the bill — the Legislature can override only with a two-thirds vote in both chambers, a rare occurrence in Texas politics.
• Take no action — if the governor doesn’t sign or veto within 10 days (20 after adjournment), the bill automatically becomes law.

This balance reflects Texas’s system of checks and balances: the Legislature writes the laws, but the governor has the final say unless both chambers can muster a strong consensus to override.

By default, new laws take effect 90 days after adjournment. To take effect sooner, a bill must pass with a two-thirds vote in both chambers. Once enacted, laws are filed with the Secretary of State, published online, and bound in the official General and Special Laws of Texas.

Not all legislative work involves bills. Lawmakers also pass resolutions:

• Joint Resolutions — Propose constitutional amendments, which require voter approval.
• Concurrent Resolutions — Express the will of both chambers or direct state agencies, sometimes requiring the governor’s approval.
• Simple Resolutions — Apply only to one chamber, often for rules, studies, or ceremonial recognitions.

Resolutions are how the Legislature handles business that doesn’t rise to the level of a full law, but still matters in shaping governance and public policy.