LEGISLATIVE UPDATE: How a Bill becomes a Law

How does a bill become law? This is a seemingly simple question that requires a rather detailed, lengthy response. Creating laws is not an easy or simple process, which is no accident. As a matter of fact, this is the way the Founding Fathers intended it. Our Founding Fathers wanted to ensure that bills face much scrutiny and deliberation before becoming law. Hence, they established the framework for a robust, stringent process that a bill must undergo to become law, safeguarding against the passage of impulsive or ill-conceived legislation. Throughout the 2025 Regular Session, you will observe the process outlined below as pieces of legislation filed by members of the General Assembly move forward. 

Step 1: Introduction and Committee Referral: A bill may be introduced in either the House or Senate. Each bill is assigned a number, read by title and sponsor, and referred by the Committee on Committees, a group of legislative leaders tasked with assigning a bill to a committee, to the appropriate standing committee. 

Step 2: Committee Consideration: The committee assigned a bill by the Committee on Committees will either choose to act or fail to act on it, resulting in the bill's death. If the committee chooses to act, a public hearing is held, which is also broadcast live on KET.org and the legislature's YouTube page, @KYLRCCommitteeMeetings. The bill is presented, debated, and open to questioning from committee members. A bill may be reported out of committee with one of the following reports: favorable, favorable with amendments, favorable with committee substitutes, unfavorable, or without opinion. 

Step 3: First Reading: When a committee reports a bill favorably, the bill is given its first reading on either the House or Senate floor and is placed in the Calendar for the following day for its second reading. 

Step 4: Second Reading and then to Rules: The bill is read for a second time and sent to the Rules Committee, a group of legislative leaders and other members who prepare the Orders of the Day. The Rules Committee then decides to either recommit the bill, sending it back to committee, or to place it in the Orders of the Day, a list of bills and resolutions ready to be debated and/or adopted within each chamber that day. 

Step 5: Third Reading and Passage: Typically, the Majority Floor Leader, the spokesperson for the majority party on the floor, makes the motion to read the bill for a third time. Earlier this month, HB 1, a measure that would lower the individual income tax from 4% to 3.5%, was read for the third time on the House floor. The motion went as follows: "I move that House Bill 1 be taken from the Orders of the Day, read for the third time by title and sponsor only, and placed upon its passage." The motion is adopted by voice vote, and the floor is open for debate. After debate on the bill and any amendments, a final vote is taken. To pass, the bill must be approved by at least two-fifths of members in each chamber, equivalent to 40 representatives or 16 senators, with a majority of members present and voting, unless the bill contains an appropriation of funds or an emergency clause. In that case, the bill must be approved by a majority of members in each chamber, equivalent to 51 representatives and 20 senators. 

Next Steps: If a bill is defeated, it will likely not have another vote unless two members who voted against it request its reconsideration, and the majority approves. If a bill passes in one chamber, it will move to the other chamber for consideration, where it goes through the same first five steps again. In the end, both the House and Senate must agree on the final form of the bill. If either chamber fails to concur on amendments, the differences may be reconciled by a conference committee of both representatives and senators. Changes agreed to by the conference committee are subject to approval by both chambers. 

Step 6: Enrollment: Once a bill is passed by both the House and Senate, it is carefully read to ensure the final wording is correct. The bill is then signed by the presiding officer of each chamber, the Speaker of the House and the President of the Senate, and sent to the Governor. 

Step 7: Governor's Action: Once received, the Governor has 10 days, excluding Sundays, to act on the bill. The Governor may sign it, permit it to become law without a signature, or veto it. If the Governor vetoes the bill, the legislature may override the veto if a majority of members in both the House and Senate vote to do so. 

As you can see, the process of passing legislation is not a simple one, and we, as legislators, do not take this responsibility lightly. As legislators, we are looking to advance policies that will make Kentucky a better place to live, work, and raise a family. 

As the second part of the 2025 Regular Session commences, I encourage you to watch committee meetings and floor proceedings live on KET.org and follow @KYHouseGOP on social media to keep track of things happening in Frankfort. As always, I can be reached anytime through the toll-free message line in Frankfort at 1-800-372-7181. You can also contact me via email at Timmy.Truett@kylegislature.gov and keep track through the Kentucky legislature's website at legislature.ky.gov.