How Does a Bill Become a Law?
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Written By: Leslie Petersen and John Norman, Esq. (MortgageCurrentcy.com)
Recently Congress passed the Housing and Economic Recovery Act of 2008 in what was lightening speed for Congress. In order for a Bill to become a law, there are several different hearings in each Chamber of Congress and procedural hurdles, which typically make it a long time before a Bill becomes law.
A bill is essentially an idea for a new law. A legislator - who is either a Senator or member of the House of Representatives - gets an idea for a new law from a constituent(s), a lobbyist, from legislative leadership, or from their own experience. Almost every consumer protection law from RESPA, TILA, ECOA, to HMDA grew out of a desire to address very specific problems in lending and in some cases, specifically mortgage lending.
So let's step through this process for the making of the laws that govern our nation and our industry.
INTRODUCTION OF THE BILL
After the legislator gets an idea for a bill it must be "introduced". The introduction comes after the legislator works with legislative counsel to write, or "draft" the bill. The draft is then placed in the "Hopper" by the Representatives in the House of Representatives; or, introduced by the Senator during the Morning Hour1 in the Senate. After the bill is introduced it is given a number and sent to the Government Printing Office (GPO) for copies to be made.
1Morning Hour - A 90 minute period on Mondays and Tuesdays in the House of Representatives set aside for five minute speeches by members who have reserved a spot in advance on any topic. (www.VoteSmart.org )
ASSIGNED TO COMMITTEE(S)
Next, the Presiding Officer in the Senate or the Speaker of the House of Representatives assigns the bill to a committee. A bill can be assigned to multiple committees or different parts of the bill can be assigned to different committees. The committee chair can then: (a) do nothing; (b) send the bill to a sub-committee; or (c) schedule hearings to debate the bill. These three options occur in varying sequences with any bill: i.e., a bill coming out of a subcommittee can be held in the full committee without further action.
IN THE COMMITTEE
No Action (doing nothing): If the committee chair fails to hold hearings or if the committee takes no action on the bill, then it is effectively defeated or killed. To stop this from happening, the House allows a bill to be lifted from committee by a Discharge Petition, but it takes a minimum of 218 signatures from the members of the House to lift the bill.
Sent to a Subcommittee(s): Subcommittees follow some or all of the same procedures as a full committee. When their work is completed, findings are sent to the full committee.
Full Committee Hearing: Committee steps are:
- Comments from relevant government agencies, industry representatives and other parties.
- Hearing and debates may be held.
- Subcommittees report their findings.
- Finally, the bill is "ordered to be reported" for a final vote.
- The committee holds a "mark-up" session during which it makes revisions and additions.
- If substantial amendments are made, the committee can order the introduction of a "clean bill" which will include the proposed amendments.
- This new bill will have a new number and will be sent to the floor while the old bill is discarded.
- The chamber must approve, change or reject all committee amendments before conducting a final passage vote.
- If the bill gets a passing vote, the committee staff prepares a written report explaining why they favor the bill and why they wish to see their amendments, if any, adopted. Committee members who oppose a bill sometimes write a dissenting opinion in the report. The report is sent back to the whole Senate or House of Representative floor, and is placed on the calendar.
House of Representatives Rules Committee: In the House, most bills go to the Rules Committee before reaching the floor. The committee adopts rules that will govern the procedures under which the House will consider the bill. These rules can have a major impact on whether the bill passes. For instance, a "closed rule" sets strict time limits on debate and forbids the introduction of amendments.
The rules committee can be bypassed in three ways: 1) members can move rules to be suspended (requires 2/3 votes); or 2) a discharge petition can be filed; or 3) the House can use a Calendar Wednesday2 procedure.
2 Calendar Wednesday - A procedure in the House of Representatives in which standing committees may bring any bill up for consideration that was reported on the floor on or before the previous day. The procedure also limits debate for each subject matter to two hours. (www.VoteSmart.org).
TO THE HOUSE OR SENATE FLOOR
Now the Bill is placed on one of the calendars, usually in the order in which it was reported to the floor. All the members of the House or the Senate then consider the Bill for debate on the floor.
The House of Representatives follows the rules for debate as set by the Rules Committee. It is helpful to understand that House Rules are generally based on majority rule. Thus, no one member of the House can hold up a piece of legislation by themselves.
In the Senate there is unlimited time for debate and the Majority Leader decides when a bill can be considered on the floor. Any individual Senator can talk as long as he or she would like, thus, a small number of Senators or even one Senator can filibuster (talk a Bill to death).
If a vote is held by either Chamber (House or Senate), and the majority vote is in favor of the Bill – it passes. If any Bill passes the Senate, it must then be sent to the House to start the process over again under the House rules. If any Bill passed the House, it must then be sent to the Senate where it starts the process over again under the Senate Rules.
DIFFERENT VERSIONS PASS
In all likelihood, once a Bill passes both Chambers of Congress there are differences between the two versions. In that case it is then sent to a Conference Committee consisting of members of both Chambers. The Conference Committee will then come to a compromise and issue a Conference Report. The Conference Report must then be sent to both the House of Representatives and to the Senate for approval.
TO THE PRESIDENT FOR SIGNATURE
If both Chambers approve the Conference Report, the bill then goes to the President for a either a signature or a veto. If a bill is signed, it becomes law. If it is vetoed, it will only become law if both Houses of Congress override the veto.
WHAT IF THE BILL DOESN'T PASS IN THE CURRENT SESSION?
Currently we are in the 110th Session of Congress. The Federal Fiscal Year begins in October. Thus, each Congress ends in September. The current projection is that the 110th Congress will adjourn on September 26, 2008.
If a bill fails to pass both Houses of Congress during any session, it is dead and the process must start over again during the next session.
DELIBERATE AND TRANSPARENT SYSTEM
You can see that we have a system that is deliberative and transparent. This process takes a long time to complete for any idea to become law. The Housing and Economic Recovery Act of 2008 had momentum because policy makers wanted to look like they were addressing the problems created by the sub-prime fallout. Many of the ideas in the Recovery Act were proposed as early as last year. For example, the licensing provisions that were part of H.R. 3915 that passed the House in December 2007.
It looks like there are more changes to come, but we will need to wait for the Presidential Elections to see who controls the White House in 2009. To get our voices heard it is important to vote, contact your Senator and Representative, and generally be active in politics. “Democracy is not meant for the naive, apathetic or the lethargic.” (Neal A. Maxwell) If we, the people, fail to participate, then the system does not function properly. If the system doesn’t function, confidence in the system is lost. When confidence in the system is lost, we cease to be a society governed by the rule of law. The rule of law is what preserves our freedoms.
As we can see with the subprime crisis, there is no confidence from investors in mortgage-backed securities. This lack of confidence could potentially erode the whole financial system. Perhaps the Housing and Economic Recovery Act of 2008 will restore that confidence, especially in the debt issued by Fannie Mae and Freddie Mac. But we must also insist that our Representatives and Senators fix the lack of confidence caused by the actions of rating agencies and security issuers, which also facilitated this crisis.
Copyright - 2009 - LoanOfficerMagazine.com
 Written By: Leslie Petersen and John Norman, Esq.
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