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3 Officers of the Congress

The Constitution provides that the vice president shall be President of the Senate. The vice president has no vote, except in the case of a tie. The Senate chooses a President pro tempore to preside when the vice president is absent.

The House of Representatives chooses its own presiding officer—the Speaker of the House. The speaker and the president pro tempore are always members of the political party with the largest representation in each house, aka the majority

At the beginning of each new Congress, members of the political parties select floor leaders and other officials to manage the flow of proposed legislation. These officials, along with the presiding officers and committee chairpersons, exercise strong influence over the making of laws.

4 The committee process

One of the major characteristics of the Congress is the dominant role that Congressional committees play in its proceedings. Committees have assumed their present-day importance by evolution, not by constitutional design, since the Constitution makes no provision for their establishment. In 1885, when Woodrow Wilson wrote Congressional Government, there were only 60-odd legislative committees and subcommittees, in the 1990's there were 300. There are so many subcommittees that Morris Udall of Arizona could joke that he could address any Democrat whose name he had forgotten, "Good morning, Mr. Chairman," and half the time be right. (Frozen Republic, 191)

At present the Senate has 17 full-fledged standing (or permanent) committees; the House of Representatives has 19 standing committees. Each specializes in specific areas of legislation: foreign affairs, defense, banking, agriculture, commerce, appropriations, etc. Almost every bill introduced in either house is referred to a committee for study and recommendation. The committee may approve, revise, kill or ignore any measure referred to it. It is nearly impossible for a bill to reach the House or Senate floor without first winning committee approval. In the House, a petition to release a bill from a committee to the floor requires the signatures of 218 members; in the Senate, a majority of all members is required. In practice, such discharge motion s only rarely receive the required support.

The majority party in each house controls the committee process. Committee chairperson s are selected by a caucus of party members or specially designated groups of members. Minority parties are proportionally represented on the committees according to their strength in each house.

Bills are introduced by a variety of methods. Some are drawn up by standing committees; some by special committees created to deal with specific legislative issues; and some may be suggested by the president or other executive officers. Citizens and organizations outside the Congress may suggest legislation to members, and individual members themselves may initiate bills. After introduction, bills are sent to designated committees that, in most cases, schedule a series of public hearing s to permit presentation of views by persons who support or oppose the legislation. The hearing process, which can last several weeks or months, theoretically opens the legislative process to public participation.

One virtue of the committee system is that it permits members of Congress and their staffs to amass a considerable degree of expertise in various legislative fields. In the early days of the republic, when the population was small and the duties of the federal government were narrowly defined, such expertise was not as important. Each representative was a generalist and dealt knowledgeably with all fields of interest. The complexity of national life today calls for special knowledge, which means that elected representatives often acquire expertise in one or two areas of public policy.

When a committee has acted favorably on a bill, the proposed legislation is then sent to the floor for open debate. In the Senate, the rules permit virtually unlimited debate. In the House, because of the large number of members, the Rules Committee usually sets limits. When debate is ended, members vote either to approve the bill, defeat it, table it (which means setting it aside and is tantamount to defeat) or return it to committee. A bill passed by one house is sent to the other for action. If the bill is amended by the second house, a conference committee composed of members of both houses attempts to reconcile the differences.

Conference committees are not supposed to add anything that was not supported by either house, or delete anything that was supported by one house, but in practice conference committees make substantial changes to legislation. According to Citizens Against Government Waste, conference committees even add pork to legislation. For the 2005 budget conference committees added 3407 pork barrel appropriations, budget, up from 47 pork barrel appropriations in 1994.

Once passed by both houses, the bill is sent to the president, for constitutionally the president must act on a bill for it to become law. The president has the option of signing the bill—at which point it becomes national law—or vetoing it. A bill vetoed by the president must be reapproved by a two-thirds vote of both houses to become law, this is called overriding a veto .

The president may also refuse either to sign or veto a bill. In that case, the bill becomes law without his signature 10 days after it reaches him (not counting Sundays). The single exception to this rule is when Congress adjourns after sending a bill to the president and before the 10-day period has expired; his refusal to take any action then negates the bill — a process known as the " pocket veto."

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