A reader’s guide
Congress, in plain English.
A glossary for reading bills, following votes, and understanding what happens next.
Definitions are written by PlainBill with official references linked below. Examples are illustrative. The meaning of a vote depends on its exact question, and passage in one chamber does not mean a bill is law.
Amendment
A proposed change to a measure’s text. It can add, remove, or replace language. Agreeing to an amendment does not by itself pass the whole bill. A constitutional amendment changes the Constitution and follows a separate proposal and ratification process; see Joint resolution.
For example: An amendment could change a program’s expiration date from 2028 to 2030.
Appropriation
A law or provision that supplies budget authority for specified government spending. It is different from simply authorizing a program to exist.
For example: Congress provides funding for an agency’s operations for a fiscal year.
Authorization
A law or provision that establishes or continues a government activity and sets its rules. It may authorize future appropriations; that alone does not provide the money.
For example: A bill creates a grant program and permits Congress to fund it later.
Bill
A proposal for a law. H.R. identifies a House bill and S. identifies a Senate bill. A bill must clear both chambers in the same form and complete the constitutional enactment process to become law.
For example: H.R.25 identifies a House bill. Include its Congress because bill numbers are reused.
Cloture
The Senate’s procedure for limiting further debate and consideration. For most legislation, invoking cloture requires three-fifths of senators duly chosen and sworn, usually 60. Different thresholds apply in some circumstances. Cloture is not final passage.
For example: Senators can vote to limit debate on a bill and vote separately on whether to pass it.
Committee
A smaller group of lawmakers assigned to particular subjects. Committees can gather evidence, examine and revise bills, and recommend action to their chamber. A subcommittee works within a committee.
For example: A transportation bill may go to a committee responsible for transportation policy.
Companion bill
A separate measure introduced in the other chamber with identical or substantially similar text. It has its own number and legislative record; it is not simply the original bill moving to the other chamber.
For example: A House bill and a similar Senate bill may advance on different schedules.
Concurrent resolution
A measure concerning both chambers, identified as H.Con.Res. or S.Con.Res. It is not presented to the president and does not itself make law.
For example: Congress can use a concurrent resolution to agree on a budget framework.
Conference committee
A temporary House–Senate committee formed to resolve differences between the chambers’ versions of a measure. The resulting agreement still needs approval by both chambers. A conference is not required for every bill.
For example: Conferees negotiate a compromise when the House and Senate have passed different versions.
Congress
The federal legislature, made up of the House and Senate. A numbered Congress also identifies an approximately two-year legislative period. Bill references need that number to distinguish measures from different periods.
For example: The 119th Congress covers 2025–2026; H.R.25 in another Congress is a different bill record.
Continuing resolution (CR)
An appropriations law that keeps agencies or programs funded when regular appropriations are not in place. It often lasts a short time, but can cover a full year and may include exceptions to prior funding levels.
For example: A CR may keep an agency funded for several weeks while Congress works on annual funding.
Cosponsor
A lawmaker who formally signs on to support a measure introduced by its sponsor. Cosponsorship is distinct from a recorded vote, and a member can withdraw it.
For example: A bill can have one sponsor and many cosponsors before any floor vote occurs.
Earmark
Broadly, a provision directing funds to a particular recipient, project, or place outside an ordinary competitive or formula-based process. Congressional disclosure rules use specific definitions and also address certain tax and tariff benefits. Classification can require accompanying reports and disclosures.
For example: Funding directed to a named local project may warrant checking the relevant earmark disclosures. The label alone does not establish waste or wrongdoing.
Enactment
The point at which legislation becomes law. After both chambers agree to the same text, this can happen through presidential signature, without signature under the Constitution’s conditions, or through a congressional veto override. A pocket veto prevents enactment.
For example: A bill that has passed only the House has not yet been enacted.
Engrossed
The official text of a measure as passed by one chamber, including amendments it adopted. This does not mean the other chamber has agreed or that the measure is law.
For example: “Engrossed in House” identifies the version approved by the House.
Enrolled
The final official text after the House and Senate have passed the same measure in identical form, prepared for presentation to the president. Enrollment itself is not enactment.
For example: An enrolled bill can still be signed into law or vetoed.
Filibuster
Senate tactics used to delay or block action by preventing a matter from reaching a vote. A filibuster does not necessarily involve a continuous speech.
For example: Supporters may seek cloture to limit further debate on a delayed bill.
Introduction
The formal submission of a measure for consideration. Introduction starts its legislative record; it does not mean a committee or either chamber has approved it.
For example: An introduced bill may be referred to a committee and receive no further action.
Joint resolution
A measure identified as H.J.Res. or S.J.Res. Most follow the same enactment process as bills. A joint resolution proposing a constitutional amendment instead requires two-thirds approval in each chamber and ratification by three-fourths of the states, without presidential approval.
For example: A joint resolution can propose a constitutional amendment; approval by Congress alone does not add it to the Constitution.
Markup
A committee meeting to consider a measure’s text and possible changes, and decide whether to recommend it to the full chamber. Committee approval is not passage by the House or Senate.
For example: During markup, committee members debate and vote on amendments.
Passage
Approval of a measure by a chamber. House passage alone is not Senate passage or enactment. A vote on final passage addresses the measure itself, unlike a vote on an amendment or a procedural step.
For example: “Passed House” means the House approved that version; further action may still be needed.
Procedural vote
A vote about how the chamber will handle its business, such as whether to begin considering a measure or limit debate. Its meaning depends on the exact question. It does not necessarily show support for every provision of the underlying bill.
For example: Voting to take up a bill is different from voting to pass it.
Reconciliation
A budget process for changing laws to carry out instructions in a congressional budget resolution, including changes to taxes and spending. It has special procedural rules. It is different from negotiating a compromise between House and Senate versions of an ordinary bill.
For example: A budget resolution can direct a committee to propose specified spending changes in reconciliation legislation.
Rider
A provision outside a measure’s main subject, or a policy change attached to an appropriations measure affecting the funded program’s governing law. The term describes the provision’s relationship to the measure; it does not by itself establish improper intent.
For example: A funding package may also contain a change to permanent program rules.
Roll-call vote
A vote with individual members’ positions recorded. Always read the question: a roll call can concern passage, an amendment, or a procedural motion.
For example: An individual “Yea” on cloture is a vote to limit debate, not automatically a vote for final passage.
Simple resolution
A measure identified as H.Res. or S.Res. that concerns one chamber, such as its rules or an expression of its views. It does not go to the other chamber or the president and does not itself make law.
For example: The House may adopt a resolution expressing its position on an issue.
Sponsor
The member formally identified as introducing a measure. Other members who sign on are cosponsors. Sponsorship alone does not establish that a bill will advance.
For example: The bill record names its sponsor even if no committee vote has taken place.
Unanimous consent
An agreement to act without objection from any member present. It can govern scheduling, debate, or approval of a measure. It is not an individual roll-call record of every member’s support.
For example: A chamber may agree to a measure without a roll call when no member objects.
Veto
The president’s rejection of legislation. Congress can override a regular veto with a two-thirds vote in each chamber. A pocket veto occurs when the president does not sign within the constitutional period and an adjournment prevents return of the bill; it cannot be overridden.
For example: Both chambers passing a bill does not guarantee enactment if the president vetoes it.
Voice vote
A vote in which members respond aloud and the presiding officer announces the result. It does not produce a list of how each member voted.
For example: “Passed by voice vote” reports an outcome but does not identify individual supporters or opponents.
Something unclear? Suggest a term or send a correction.