Legislative History Research: A Basic Guide
Julia Taylor
Section Head - ALD Section and Information Research Specialist
June 15, 2011
Congressional Research Service
7-5700
www.crs.gov
R41865
CRS Report for Congress
P
repared for Members and Committees of Congress

Legislative History Research: A Basic Guide

Summary
This report provides an overview of federal legislative history research, the legislative process,
and where to find congressional documents. The report also summarizes some of the reasons
researchers are interested in legislative history, briefly describes the actions a piece of legislation
might undergo during the legislative process, and provides a list of easily accessible print and
electronic resources. This report will be updated as needed.


Congressional Research Service

Legislative History Research: A Basic Guide

Contents
Introduction ................................................................................................................................ 1
The Legislative Process............................................................................................................... 1
Legislative History Resource Material......................................................................................... 2
Compiled Histories ............................................................................................................... 2
Legislation ............................................................................................................................ 3
Texts of Legislation......................................................................................................... 3
Bill History and Status .................................................................................................... 4
Committee Action ................................................................................................................. 5
Floor Action.......................................................................................................................... 7
The Congressional Record .............................................................................................. 8
Roll Call Votes ................................................................................................................ 9
Conference Committee Action .............................................................................................. 9
Conference Committee Reports..................................................................................... 10
Presidential Action .............................................................................................................. 10
Presidential Signing Statements..................................................................................... 10
Public Laws ........................................................................................................................ 11

Contacts
Author Contact Information ...................................................................................................... 12
Acknowledgments .................................................................................................................... 12

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Legislative History Research: A Basic Guide

Introduction
Black’s Law Dictionary defines legislative history as “the background and events leading to the
enactment of a statute, including hearings, committee reports, and floor debates.” 1
It also describes one of the primary purposes legal, policy, and legislative researchers investigate
the legislative history of a particular piece of legislation: “Legislative history is sometimes
recorded so that it can later be used to aid in interpreting the statute.”2
However, the purpose of legislative history research is not limited to statutory interpretation.
Questions researchers may want to answer through legislative history include
• Which committees and Members were involved?
• How was the legislative language amended as it advanced through the
congressional process?
• How did Members vote on proposed amendments and final passage?
To answer these and similar questions, researchers must identify the chronological steps the
legislation followed through Congress and the materials that document what happened during
each of these steps.
The Legislative Process
This report focuses on legislative history research, and therefore does not contain detailed
information about the legislative process. However, because a general understanding of the
legislative process is helpful when compiling a legislative history, overviews of certain
congressional actions are provided. Detailed guides on the legislative process for the House and
Senate are available online:
• How Our Laws Are Made, Revised and Updated, by John V. Sullivan
Parliamentarian, United States House of Representatives
Presented by Mr. Brady of Pennsylvania
July 24, 2007
http://thomas.loc.gov/home/lawsmade.toc.html
• Enactment of a Law by Robert B. Dove
Parliamentarian, United States Senate
Updated: February 1997
http://thomas.loc.gov/home/enactment/enactlawtoc.html
In addition, there are a number of Congressional Research Service (CRS) reports on various
aspects of the legislative process referenced throughout this report and available on CRS’s
website at http://www.crs.gov.

1 Black’s Law Dictionary, 9th Ed.
2 Ibid. For further analysis of the use of legislative history for the interpretation of statutes, see CRS Report 97-589,
Statutory Interpretation: General Principles and Recent Trends, by Larry M. Eig,.
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Legislative History Resource Material
The legislative history resource materials discussed below vary in scope and availability. For
example, the Government Printing Office’s (GPO’s) Federal Digital System (FDsys), through its
website http://www.gpo.gov/fdsys/search/home.action, is an online collection of official
congressional publications and databases containing texts of legislation, the Congressional
Record
, House and Senate calendars, committee prints, committee hearings, committee reports,
and other material useful for legislative research.3 However, the information available on these
websites is limited to more recent Congresses. By contrast, print publications may be more
historically complete, but limited to only one type of document or information. For example, the
Congressional Record and its predecessor publications, which are available in print going back to
1789, contain information on procedural actions for legislation and transcripts of the proceedings
on the House and Senate floor, but do not contain the text of committee hearings.
The references cited below are available online through government sources or in hard copy
through CRS or the Law Library of Congress. They are also commonly available at local
libraries, law libraries, or federal depository libraries. References to fee-based services that
require subscriptions are not included because they may not be available in all congressional
offices. GPO has a website to assist patrons in finding the nearest depository library, at
http://catalog.gpo.gov/fdlpdir/FDLPdir.jsp.
In addition, some stages of the legislative process are more fully documented than others. For
example, bills are often debated and amended extensively during their consideration by
congressional subcommittees, but these deliberations are not usually transcribed and made widely
available. In general, information on subcommittee action is limited to discussion in news
accounts or reports from the full committee.
Compiled Histories
In some instances, a legislative history may have already been compiled. There are a couple of
government sources for compiled legislative histories.
Print Sources
Government Accountability Office (GAO) Legislative History Microfiche. Contains the legislative
history for most public laws from 1921 to 1980. Reprints from the microfiche may be available
from CRS, the Law Library of Congress, or at a federal depository library.
Committee Prints. On occasion, committees produce legislative histories of enactments within
their jurisdiction. Reprints of published copies of committee prints may be available through
CRS, the Library of Congress, or at a federal depository library.

3 The Government Printing Office is in the process of migrating information from GPO Access into FDsys. This report
references material available through FDsys. For more information on the transition, see GPO’s FDsys information
page at http://www.gpo.gov/projects/fdsysinfo.htm.
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Legislation
Bills. Most legislation introduced by a Member of Congress (i.e., the legislation’s sponsor) is
introduced as a “bill,” the general form used for legislation that will have the force of law if
enacted.4 Bills are numbered sequentially in the order they were introduced. Bills introduced in
the Senate are preceded by “S.”; those in the House by “H.R.” Bills remain pending from the time
of introduction until final passage or the final adjournment of a Congress (i.e., the numbered two-
year convocation of the House and Senate that begins January 3 following each biennial federal
election). Bills not enacted during a Congress “die”; further legislative consideration requires that
they be reintroduced in the next Congress.
Joint Resolutions. While bills are used for purposes of general legislation, joint resolutions (S.J.
Res. or H.J. Res.) are used to propose constitutional amendments and for a variety of special or
subordinate purposes, such as continuing appropriations.5 Except for those proposing
constitutional amendments, joint resolutions become law in the same manner as bills.
If a legislative measure receives action, GPO publishes versions of the legislative text as it moves
through the various stages of the legislative process. These versions include those marked
reported, engrossed, engrossed House/Senate amendment,6 public print, and enrolled. By
comparing different bill or resolution texts, researchers can determine at what stage in the
legislative process revisions were made.
Texts of Legislation
Online Sources
Government Printing Office (FDsys)
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=BILLS
FDsys enables users to browse or search for bills and resolutions from the 103rd Congress (1993-
1994) forward.
Legislative Information System (LIS)
http://www.congress.gov
THOMAS
http://thomas.loc.gov

4 A bill is enacted only if both houses of Congress pass identical versions of it and either the President signs the passed
version or, if the President vetoes the bill, two-third majorities of both houses pass the bill again thereby overriding the
veto.
5 Simple and concurrent resolutions do not have the force of law and therefore were omitted from this discussion. For
additional information on all types of bills and resolutions, see CRS Report 98-706, Bills and Resolutions: Examples of
How Each Kind Is Used
and CRS Report 98-728, Bills, Resolutions, Nominations, and Treaties: Characteristics,
Requirements, and Uses
, both by Richard S. Beth.
6 For additional information, see CRS Report 98-812, Amendments Between the Houses: A Brief Overview, by
Elizabeth Rybicki and James V. Saturno.
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LIS is available to congressional researchers. Users can browse or search for bill and resolution
texts starting with the 101st Congress (1989-1990). THOMAS is available to the general public
and covers the same time period for legislative text.
American Memory’s A Century of Lawmaking for a New Nation: Bills and Resolutions
http://memory.loc.gov/ammem/amlaw/
The American Memory website contains scanned images of some historical bills and resolutions.
Coverage for the House starts with the 6th Congress (1799-1800) through the 42nd Congress
(1871-1872). For the Senate, coverage is from the 16th Congress (1819-1821) through the 42nd
Congress (1871-1872).
Print Sources
Print versions of bills are available on microfiche or microfilm through the Law Library of
Congress (1789-current) and certain federal depository libraries.
Bill History and Status
At its most fundamental, legislative history tracks congressional action on a piece of legislation
and its status within the legislative process. When beginning a legislative history research project,
one of the first steps a researcher may want to undertake is locating information on the history of
the bill and citations to documents. Through the years, various government and private entities
have tracked the history and status of bills.
Online Sources
LIS
http://www.congress.gov
THOMAS
http://thomas.loc.gov
LIS is available to congressional offices and provides bill summary and status information on
bills and resolutions starting from the 93rd Congress (1973-1974) to the present. THOMAS, a
public legislative service from the Library of Congress, contains the same information on a bill’s
history and status.
Congressional Calendars
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CCAL
House and Senate calendars are published periodically during the session by the Clerk of the
House and the Secretary of the Senate. The calendars provide a list of legislation. In the House
calendar, the history and current status of legislation receiving action is summarized.7 FDsys

7 See CRS Report 98-437, Calendars of the House of Representatives, by Christopher M. Davis; CRS Report 98-429,
The Senate’s Calendar of Business, by Betsy Palmer; and CRS Report 98-438, The Senate's Executive Calendar, by
Betsy Palmer.
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contains final House and Senate calendars starting from the 104th Congress (1995-1996) to the
present.
Print Sources
Digest of Public General Bills and Resolutions. The Bill Digest, a publication of the Library of
Congress from 1936 until 1990, contains summaries and status of legislation.
House and Senate Calendars. Published copies of the calendars are available through CRS, the
Law Library of Congress, or at a federal depository library.
Congressional Information Service (CIS). A commercial service, the CIS Index lists each public
law in the Annual Abstracts volume and references publications concerning the law. These
references include a list of congressional hearings, reports, documents, and prints back to 1970.
The Legislative Histories volume contains the legislative history information on selected public
laws, including dates of congressional debate, back to 1970. The CIS Historical Index contains
congressional documents from 1789 through 1972.
Committee Action
Legislation is usually referred to a committee after introduction, according to its subject matter.
Often, a committee will further refer the legislation to one of its subcommittees. The
subcommittees may request reports from government agencies or departments, hold hearings,
markup the bill (meet to propose changes), and report the legislation to the full committee. The
full committee may take similar action, with or without prior subcommittee consideration, and
report the legislation to its full chamber (i.e., the House or Senate.)
Hearings. Hearings provide a committee or subcommittee the opportunity to explore topics or
legislation.8 Hearings may include statements of committee Members and interested parties, as
well as the testimony of witnesses. GPO publishes hearings made available to them by
committees.
Online Sources
GPO FDsys
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CHRG
Through FDsys researchers can download selected committee hearings starting with the 105th
Congress (1997-1998).
Print Sources
Print versions of committee hearings are available through CRS and the Law Library of
Congress. More recent hearings are available through the House and Senate Document Rooms.
Individual hearings may be available through a federal depository library.

8 For additional information on hearings, see CRS Report 98-317, Types of Committee Hearings, by Valerie
Heitshusen; CRS Report RL30548, Hearings in the U.S. Senate: A Guide for Preparation and Procedure, by Betsy
Palmer; and CRS Report 98-488, House Committee Hearings: Preparation, by Christopher M. Davis.
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Reports. Most legislation never proceeds through full committee consideration and remains in
committee for the remainder of a Congress. However, committees may, by majority vote, report
some bills and resolutions for consideration by the entire chamber. The House requires a written
report on the legislation, but the Senate does not. These committee reports can be particularly
useful documents for legislative history research because they often describe the purpose of the
legislation and summarize or explain specific provisions. The report will also give details on the
committee’s actions, understandings, and conclusions about the legislation. Changes to existing
laws, votes on amendments during markups, and subcommittee information are supplemental
material to the committee report that may also be useful for legislative history research.9 If the
legislation was considered by a subcommittee, that information may also be covered in the full
committee’s report. Committee reports are published by GPO. Sometimes, the reports are
reproduced in whole or part by commercial publishers.
Committee reports are identified as House Report (H. Rept. or H. Rep.) or Senate Report (S.
Rept. or S. Rep.) and given a number (e.g., S.Rept. 107-31 is the 31st report to the Senate in the
107th Congress).
Online Sources
LIS
http://www.congress.gov
THOMAS
http://thomas.loc.gov
LIS is available to congressional researchers and has committee reports starting from the 104th
Congress (1995-1996). THOMAS has the same coverage for committee reports.
GPO FDsys
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CRPT
FDsys contains committee reports starting from the 104th Congress (1995-1996).
Print Sources
Print versions of committee reports are available through CRS, the Law Library of Congress, and
possibly a federal depository library. More recent reports may be available through the House and
Senate Document rooms.
The Serial Set. This serial publication contains House and Senate documents and reports bound
by session of Congress beginning in 1817. It is available though CRS, the Law Library of
Congress, and may be available through a federal depository library.
U.S. Code Congressional and Administrative News (“USCCAN”). USCCAN, a commercial
service, reprints the major reports and conference report or portions thereof, for most public laws

9 For a description of other required content for committee reports, see CRS Report 98-169, House Committee Reports:
Required Contents
, by Judy Schneider and CRS Report 98-305, Senate Committee Reports: Required Contents, by
Elizabeth Rybicki.
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enacted since 1941, along with the text of the public law. This publication is available though
CRS, the Law Library of Congress, and may be in the collection of a federal depository library.
Prints and Documents. Committee prints and documents can be used to duplicate research
papers or annual reports from executive branch agencies of interest to the committee, papers
prepared by the committee staff, reports on investigative and oversight hearings and activities,
and analytical information on legislation. Some committees use prints for reproducing
compilations of laws that come under their legislative jurisdiction. Committee prints are
identified as House Print (H. Prt.) or Senate Print (S. Prt.) and given a number (e.g. Senate Print
111-6 is the sixth numbered print for the Senate in the 111th Congress). Committee documents are
identified as House Document (H. Doc.) or Senate Document (S. Doc.) and given a number (e.g.
House Document 111-2 is the second numbered document for the House in the 111th Congress).
Online Sources
GPO FDsys—Committee Prints
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CPRT
FDsys has committee prints starting from the 104th Congress (1995-1996).
GPO FDsys—Committee Documents
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CDOC
FDsys has committee documents starting from the 104th Congress (1995-1996).
Print Sources
Copies of committee prints and documents are available through CRS and the subject collections
of the Library of Congress. More recent prints and documents may be available through the
House and Senate Document rooms. Individual prints and documents may be available through a
federal depository library.
Floor Action
Legislation may be brought to the floor of the respective chambers for consideration by the full
House or Senate. The length and scope of debate on the floor of Congress (e.g., which
amendments, if any, will be considered) are governed by the rules of the respective chambers. For
example, in the House, the measure is sometimes considered under the terms of a “special rule,”
that is, a simple resolution reported by the Committee on Rules, which may be accompanied by a
written report specifying which amendments can be offered on the floor. Votes on amendments10
and final passage may or may not be in the form of a formal recorded vote, in which the vote of
each Member is identified. The debates are published in the Congressional Record. Recorded
votes, called “roll call votes,” are published in the Congressional Record but they can also be
found through other sources, such as the Clerk of the House website, the Secretary of the Senate,
and commercial publishers.

10 For additional information on the amending process, see CRS Report 98-853, The Amending Process in the Senate,
by Betsy Palmer and CRS Report 98-995, The Amending Process in the House of Representatives, by Christopher M.
Davis.
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After legislation is passed by one chamber, it is sent to the other chamber for action, where it is
often referred to committee. If the second chamber chooses to consider the legislation and passes
it without change, it is submitted to the President.
Remarks on the House or Senate floor can be useful for legislative history research because
Members will often speak to the purpose of the legislation, emphasize or clarify certain
provisions in the legislation; or raise concerns about the potential impact in their statements. In
addition to debate on passage, sponsors and cosponsors may submit introductory remarks and
materials on legislation into the Congressional Record. These remarks may explain the reasons
for, and expected effects of, the legislation.
The Congressional Record
The Congressional Record is the official record of the proceedings and debates of Congress and
contains a summary of the daily proceedings of the House and Senate. Predecessor publications
for the Congressional Record are the Congressional Globe (1833-1873), Register of Debates in
Congress
(1825-1837), and Annals of the Congress of the United States (1789-1824).
Currently, there are two editions of the Congressional Record published by GPO—the daily
edition and the permanent edition. The daily edition is published each day Congress is in session
and the pages are lettered and numbered by chamber (e.g., Senate pages begin with “S” and
House pages begin with “H”). The permanent or “bound” edition is published years later. It is
continuously paginated (e.g., the pages are renumbered and the “S” and “H” designations are
dropped) and the text may have been edited.
Online Sources
LIS
http://www.congress.gov
THOMAS
http://thomas.loc.gov
LIS is available to congressional researchers only and has links to the daily edition of the
Congressional Record starting from the 101st Congress (1989-1990). THOMAS has the same
coverage for the Congressional Record.
GPO FDsys—Congressional Record, Daily Edition
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CREC
FDsys provides the Congressional Record from 1994 to the present. Users can search by
keyword, page number, or browse by date of publication.
GPO FDsys—Congressional Record, Permanent Edition
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CRECB
The permanent edition of the Congressional Record is available through FDsys for the years 1998
through 2002.
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GPO FDsys—Congressional Record Index
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CRI
The Congressional Record Index lists all introduced legislation by number. References in the
Index are to pages in that year’s Congressional Record. Each Congress spans two years and
typically is divided into two sessions, with each session conducted during a separate calendar
year. Legislation introduced during the first session may also be referred to in the second session
of the same Congress. Coverage for the Congressional Record Index through GPO online is 1983
to the present.
American Memory’s A Century of Lawmaking for a New Nation: U.S. Congressional Documents
and Debates

http://memory.loc.gov/ammem/amlaw/
Contains scanned images of the journals and debates of Congress from 1789 through 1875.
Print Sources
Copies of the Congressional Record and its predecessor publications are available through CRS,
the Law Library of Congress, and may be available at a federal depository library.
Roll Call Votes
Online Sources
Office of the Clerk, U.S. House of Representatives
http://clerk.house.gov/legislative/legvotes.html
The House Clerk’s website has roll call votes from 1990 to the present.
Secretary of the United States Senate
http://www.senate.gov/pagelayout/legislative/a_three_sections_with_teasers/votes.htm
The Secretary of the Senate’s website has roll call votes from 1989 to the present.
Print Sources
Congressional Quarterly Almanac. The CQ Almanac, a commercial publication, contains floor
roll call votes. It also includes valuable background information as well as references to relevant
material on major legislation. CQ Almanac has been published annually since 1945. These
volumes may be available though CRS, the Law Library of Congress, and in the collection of a
local library.
Conference Committee Action
If there are differences between the House and Senate versions of a piece of legislation, the last
chamber to adopt its version may send its language back to the other chamber for further
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consideration in amended form. The first chamber may take up the amended version, or the two
chambers may establish a conference committee to reach agreement on a common version.11 Each
chamber appoints conferees, usually members of the original reporting committees, who may take
up only those areas in disagreement. A majority of the Senate conferees and a majority of the
House conferees must agree on what to report back to their respective chambers.
Upon reaching agreement, a conference committee usually issues a report (usually printed as a
House Report) that contains two parts: the agreed upon text and a joint explanatory statement.
The joint explanatory statement in the conference report may discuss the differences between the
House and Senate passed language, the reasons certain provisions were chosen over others, and
provide additional information on the purpose of the legislation.12
If passed by both chambers in identical form, the legislation is sent to the President.
Conference Committee Reports
Conference committee reports are available in the same formats and sources as regular committee
reports. They can also be found in the Congressional Record.
Presidential Action
The President may approve a bill or resolution, veto it, or take no action. If the President signs a
bill into law, he may issue a signing statement.13 If no action is taken, the legislation becomes
public law after 10 days (Sundays excepted) unless final adjournment of Congress has occurred,
in which case the legislation does not become law (known as a “pocket veto”).
If the President vetoes the legislation, the Congress may override the veto.14 Two-thirds of the
House of Representatives and two-thirds of the Senate must vote to override the veto. If the two
chambers vote to override the veto, the legislation becomes law without the President’s signature.
Presidential Signing Statements
Online Sources
Compilation of Presidential Documents
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=CPD

11 For additional information on conference committees, see CRS Report 98-696, Resolving Legislative Differences in
Congress: Conference Committees and Amendments Between the Houses
, by Elizabeth Rybicki and CRS Report
RL34611, Whither the Role of Conference Committees: An Analysis, by Walter J. Oleszek.
12 For additional information, see CRS Report 98-382, Conference Reports and Joint Explanatory Statements, by
Christopher M. Davis.
13 For a discussion of the applicability of presidential signing statements, see CRS Report RL33667, Presidential
Signing Statements: Constitutional and Institutional Implications
, by T. J. Halstead.
14 For more information, see CRS Report RS22654, Veto Override Procedure in the House and Senate, by Elizabeth
Rybicki.
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The Compilation of Presidential Documents is the official publication of presidential documents
issued by the National Archives and Records Administration’s Office of the Federal Register. It
consists of the Weekly Compilation of Presidential Documents and the Daily Compilation of
Presidential Documents. Of note for legislative history researchers, it contains presidential
signing statements. It is available online through the GPO’s website from 1993 to present.
Print Sources
Public Papers of the Presidents of the United States. Published by the National Archives and
Records Administration’s Office of the Federal Register, these volumes contain public messages,
speeches, and statements of the presidents beginning with President Herbert Hoover (1929) to
present. They are available through CRS, the Library of Congress, and federal depository
libraries.
Weekly Compilation of Presidential Documents. Published beginning in 1965 and ending with the
January 26, 2009 issue, it contains statements, messages, and other presidential materials released
by the White House. It is available through CRS, the Law Library of Congress, and federal
depository libraries.
Public Laws
The United States Statutes at Large contain public and private laws enacted since 1789. GPO
publishes the official text of the public and private laws of the United States. Beginning with the
110th Congress (2007-2008), GPO has digitally signed and certified the PDF versions of
individual public laws (also called “slip laws”) available from its website.
Online Sources
GPO FDsys—United States Statutes at Large
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=STATUTE
Coverage on the GPO website is from the 108th Congress (2003-2004) to the 110th Congress, first
session (2007).
GPO FDsys—United States Statutes at Large (Digitized)
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=GPO&browsePath=
United+States+Statutes+at+Large+%28Digitized%29&isCollapsed=false&leafLevelBrowse=
false&ycord=183
Coverage on the GPO website is from the 82nd Congress (1951-1952) to the 107th Congress
(2001-2002).
GPO FDsys—Public and Private Laws
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=PLAW
Coverage on the GPO website is from the 104th Congress (1995-1996) to the present.
American Memory’s A Century of Lawmaking for a New Nation: Statutes at Large
http://memory.loc.gov/ammem/amlaw/
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The American Memory website contains scanned images of the Statutes at Large from 1789
through 1875.
Print Sources
United States Statutes at Large. The Statutes at Large volumes contain public and private laws
enacted since 1789. They are available though CRS, the Law Library of Congress, and at some
federal depository libraries.
U.S. Code Congressional and Administrative News (“USCCAN”). This commercial service
reprints public laws enacted since 1941. This publication is available though CRS, the Law
Library of Congress, and may be in the collection of a federal depository library.

Author Contact Information

Julia Taylor

Section Head - ALD Section and Information
Research Specialist
jtaylor@crs.loc.gov, 7-5609

Acknowledgments
This report was originally prepared by Mark Gurevitz.


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