Order Code 98-279 GOV
Updated June 21, 2004
CRS Report for Congress
Received through the CRS Web
Sponsorship and Cosponsorship
of Senate Bills
Richard C. Sachs
Specialist in American National GovernmentNovember 25, 2008
Sponsorship and Cosponsorship
of Senate Bills
Betsy Palmer
Analyst on the Congress and Legislative Process
Government and Finance Division
A Senator who introduces a bill or other measure in the Senate is called its sponsor.
Several Senators may together submit a bill, but the first-named Senator is considered the chief
sponsor. The the chief sponsor, the
others are considered cosponsors. A bill can have only one chief sponsor.
See For more information on legislative process, see
[http://www.crs.gov/products/guides/guidehome.shtml] for more information on
legislative process..1
Sponsorship of a Bill
Senators introduce bills in the Senate chamber by handing them to a clerk at the table
below the dais. The chief sponsor’s signature must appear on the measure when it is
introduced.
In a strictly formal sense, sponsorship of a bill only identifies the Senator who
introduces it, and does not necessarily indicate support. In practice, however, Senators
Senators typically sponsor bills they support. And cosponsorsCosponsors almost always add their
names to a bill to
indicate their support. A Senator may, however, introduce a bill as a courtesy,
such as
legislation proposed by the President. In such a case, the sponsor may designate the bill
Such bills may be designated as introduced
“by request,” and this is indicated when the introduction of the bill is noted
in the
Congressional Record.
Once a bill has been handed to the clerk, it becomes the property of the Senate and
cannot be withdrawn. If a Senator desires that no action be taken on the bill, the Senator
may by unanimous consent request that action on the bill be indefinitely postponed.
As noted above, only one Senator can be the sponsor of a bill. Sometimes, a bill
may become popularly known by the names of more than one Senator, for example, the
1995 Kassebaum-Kennedy health care bill. Only the first named Senator is the chief
sponsor, in this case, Senator Kassebaum. Others identified, even though they may be
seen both in Congress and by the general public as equally responsible for the bill, are,
according to formal Senate procedure, cosponsors. The strategy of associating legislation
with the names of more than one Senator is often useful in gaining support across partisan
or ideological ranks.
Congressional Research Service ˜ The Library of Congress
CRS-2
A Senate committee may report legislation it has drafted itself as an original bill.
In such a case, there is no sponsor and there are no cosponsors. When the legislation is
1
This report was prepared by former CRS Specialist Richard C. Sachs. Please direct any
inquiries to the listed author.
CRS-2
reported and a final draft printed, a Senator brings the draft to the clerk on the chamber
floor, the draft is assigned a bill number, and the name of the Senator who brought the
legislation forward is indicated on the bill. That Senator may betypically is the committee
chairman,
but he is not, under Senate procedure, the sponsor.
For example, the Senate
Committee on Foreign Relations reported an original bill
in September 1997, on the issue
of administration of national au pair programs. The
legislative language was drafted,
marked up, and reported by the committee. Because the
chairman of the Foreign
Relations Committee presented the legislation to the bill clerk,
the bill indicatesindicated, “Mr.
Helms, from the Committee on Foreign Relations, reported the
following original bill....”
But, under Senate procedure, Senator Helms iswas not the sponsor
of the bill.
Cosponsorship of a Bill
When a Senator introduces a bill, he or she commonly attaches to the bill a form
with the names of cosponsors. Before a bill is formally introduced, a Senator becomes
a cosponsor by contacting the office of the chief sponsor and requesting that his or her
name be addedhis or her name
be added to the bill. Initial cosponsors can be added until the bill is presented to the clerk.
in the Senate chamber. There is no limit to the number of cosponsors that can be added
to a bill.
After a bill is introduced, if a Senator wishes to become a cosponsorcosponsor a measure, he or she may
request unanimous consent on the Senate floor to be added as a cosponsor. A Senator
may also contact the
chief sponsor’s office and ask to be included, or may add his or her
name by calling the
party cloakroom. However, a Senator’s name can only be formally
added to a bill by a
unanimous consent request on the chamber floor.
The printed names of additional cosponsors are added if to the printed version of the bill if
there is a subsequent
printing of the billit. However, under the regulations of the Joint
Committee on Printing,
a bill cannot be reprinted solely for the purpose of adding
cosponsors. Additional
cosponsors also are listed in the Congressional Record and in Congress’ computerized
legislative information system
Congress’ online Legislative Information System. Unless agreed to by unanimous
consent, a bill, upon
introduction, may be held at the desk for a day, but no longer, for the
purpose of adding
one or more cosponsors.
The number of cosponsors that a bill attracts is usually seen as a measure of support,
and Senators and aides use a variety of techniques to encourage colleagues to sign on.
One of the most common is the “Dear Colleague” letter, a mailing to some or all Senators
soliciting support for a bill. The letter is so named because it nearly always begins with
the appellationgreeting “Dear Colleague.”
No Senate rules or any formal procedures govern “Dear Colleague” letters. They are,
in effect, advertisements for the sponsoring Senator’s (or Senators’) legislation.
Typically, the letters briefly state the issue the legislation addresses, the major
components of the measure, the likely impact of the legislation, and an appeal to join as
a cosponsor. Almost always, the letters carry the name and phone number of a staff aide
to contact to become a cosponsor of the measure (see CRS Report RL 34636, ‘Dear
Colleague’ Letters: Current Practices, by Jacob R. Straus).