To be sure, ideas and recommendations for legislation come from a wide variety of sources, such as individual Senators; committees and other Senate working groups; legislative staff; party and chamber leaders; executive branch agencies and the White House; states and localities; members of the media; citizens; and interest groups. Any or all of these individuals or entities may participate in drafting legislation, but only a Senator may formally introduce legislation in the Senate. An abundance of information is available to Senators in the form of reports, studies, and presentations offered by a wide range of individuals, groups, and organizations, including CRS. To what committee is it likely to be referred? Drafting Legislation

There is no Senate rule that introduced bills and resolutions must be prepared by the Office of the Legislative Counsel. Still, the office plays an important role by providing Senators and staff, at their request, with drafts of legislation. Use of the office by Senators and staff is nearly universal. Initial (or "original") cosponsors can be added until the measure is presented to the bill clerk in the Senate chamber. Cosponsors do not sign the bill, but the sponsor is required to. Introducing a Bill or Resolution

At the beginning of each new Congress, the Senate traditionally adopts a standing order allowing Senators to introduce measures at any time the chamber is in session by presenting them to the bill clerk seated at the desk on the Senate floor. There is no limit on the number of measures a Senator may introduce, and Senators may propose legislation for any reason. Statistics on introduced bills and resolutions are provided in Table 1 . These statements appear in the "Statements on Introduced Bills and Joint Resolutions" section. Committee Referral

Referral decisions are made by the Senate Parliamentarian acting on behalf of the presiding officer. Referral occurs primarily on the basis of committee jurisdictions set forth in Senate Rule XXV. Under the provisions of Senate Rule XVII, a measure is referred to the committee with "jurisdiction over the subject matter which predominates in such proposed legislation."
Authoring and introducing legislation is fundamental to the task of representing voters as a U.S. Senator. Part of what makes the American political process unique is that it affords all Senators an ability to propose their own ideas for chamber consideration. By comparison, most other democratic governments around the world rely on an executive official, often called a premier, chancellor, or prime minister, to originate and submit policy proposals for discussion and enactment by the legislature. Legislators serving in other countries generally lack the power to initiate legislative proposals of their own.
In the American political system, ideas and recommendations for legislation come from a wide variety of sources. Any number of individuals, groups, or entities may participate in drafting bills and resolutions, but only Senators may formally introduce legislation in the Senate, and they may do so for any reason.
When a Senator has determined that a bill or resolution is ready for introduction, it can be delivered to the bill clerk's desk on the chamber floor when the Senate is in session. The sponsor must sign the measure and attach the names of any original cosponsors on a separate form. Cosponsors do not sign the bill. There is no Senate rule that introduced bills and resolutions must be prepared by the Senate Office of the Legislative Counsel, but the office plays an important role by providing Senators and staff, at their request, with drafts of legislation. Use of the office by Senators and staff is nearly universal.
Once introduced, the Senate Parliamentarian, acting on behalf of the presiding officer, refers legislation to committee based primarily on how its contents align with the subject matter jurisdictions of committees established in Senate Rule XXV. Multiple referral is rare in the Senate due to Senate Rule XVII, which states that a measure is referred to the committee with "jurisdiction over the subject matter which predominates in such proposed legislation."
This report is intended to assist Senators and staff in preparing legislation for introduction. Its contents address essential elements of the process, including bill drafting, the mechanics of introduction, and the roles played by key Senate offices involved in the drafting, submission, and referral of legislation. Statistics on introduced bills and resolutions are presented in the final section to illustrate patterns of introduction in recent Congresses.