Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

Bills, Resolutions, Nominations, and Treaties:
November 16, 2020
Characteristics and Examples of Use
Jane A. Hudiburg
In each chamber of Congress, four forms of legislative measures may be introduced (or, in the
Analyst on Congress and
case of resolutions, submitted) and acted on: bills, joint resolutions, concurrent resolutions, and
the Legislative Process
resolutions of one house (“simple resolutions”). In addition, under the U.S. Constitution, the

Senate acts on two forms of executive business: nominations and treaties. This report provides a
comparison of the formal characteristics and uses of these six different types of business.

When Congress seeks to pass a law, it uses a bill or joint resolution, which must be passed by both houses in identical form
and then presented to the President for the executive’s approval or disapproval. To regulate its own internal affairs, or for
other purposes where authority of law is not necessary, Congress uses a concurrent resolution (requiring adoption by both
houses) or a simple resolution (requiring action only in the house of origin).
Bills are commonly used for lawmaking purposes such as authorizing programs, appropriating funds, raising or lowering
revenues, and other major policy enactments. Joint resolutions are used chiefly for secondary, symbolic, or declaratory
legislation but also for such matters as continuing appropriations, declarations of war, and proposing constitutional
amendments. Concurrent resolutions are used for matters affecting both chambers, such as recesses, adjournments, and the
congressional budget resolution. Simple resolutions are used for adopting chamber rules, committee assignments, discipline
of Members, expressions of sentiment, and other housekeeping purposes in each chamber.
The Senate also considers nominations and treaties. This “executive business” is so called because it is transmitted by the
President, who must obtain the advice and consent of the Senate before the nomination or treaty becomes effective.

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Contents
Introduction ................................................................................................................... 1
Characteristics of Congressional Business........................................................................... 1
Legislative Measures ....................................................................................................... 1
Bills (H.R. or S.) ....................................................................................................... 1
Joint Resolutions (S.J.Res. or H.J.Res.) ......................................................................... 2
Concurrent Resolutions (S.Con.Res. or H.Con.Res.) ....................................................... 3
Simple Resolutions (H.Res. or S.Res.) .......................................................................... 4
The Senate’s Executive Business ....................................................................................... 6
Nominations (PN)...................................................................................................... 6
Treaties (Treaty Doc.) ................................................................................................ 6
Forms of Business Before Congress ................................................................................... 7

Tables
Table 1. Legislative and Executive Forms of Business .......................................................... 7

Contacts
Author Information ......................................................................................................... 8

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Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

Introduction
Congress uses a bil or joint resolution to propose a law. A joint resolution is also used to propose
an amendment to the U.S. Constitution. These legislative measures must be passed by both
houses in identical form. Bil s and joint resolutions not proposing a constitutional amendment are
then presented to the President for approval or disapproval.
To regulate its own internal affairs, or for other purposes where authority of law is not necessary,
Congress uses a concurrent resolution (requiring adoption by both houses) or a simple resolution
(requiring action only in the house of origin).
The Senate also considers nominations and treaties. This “executive business” is so cal ed
because it is transmitted by the President, who must obtain the advice and consent of the Senate
before the nomination or treaty becomes effective.
Characteristics of Congressional Business
The six forms of congressional business (i.e., bil s, joint resolutions, concurrent resolutions,
simple resolutions, nominations, and treaties) may be compared in terms of the following
characteristics: designation, origin, deadline for action, requirements for approval, and product or
use. The characteristics of each form of business are displayed in Table 1. They are described
below:
 Designation: series in which business of each form is numbered. Legislative
designation is noted by H.R. and S. (bil s), H.J.Res. and S.J.Res. (joint
resolutions), H.Con.Res. and S.Con.Res. (concurrent resolutions), and H.Res. and
S.Res. (simple resolutions). Nominations are designated by PN number and
treaties are designated by Treaty Doc. number.
 Origin: who may formal y introduce, submit, or transmit to Congress business of
each form.
 Deadline for action: point at which business of each form ceases to be available
for action (if not earlier disposed of).
 Requirements for approval: institutions that must act for business of each form
to be enacted, final y agreed to, or advised and consented to.
 Product or use: result of successful action on business of each form.
Legislative Measures
Congress uses each of the four forms of legislative measures (i.e., bil s, joint resolutions,
concurrent resolutions, and simple resolutions) for a variety of purposes. The following lists
identify the most prevalent uses of each. Citations to relevant CRS reports are provided.
Bills (H.R. or S.)
Bil s are the most common form of legislative measure considered by Congress.1 Bil s originating
in the House are designated by H.R. followed by the bil number. Those originating in the Senate

1 Joint resolutions may also be used to achieve some of the purposes listed in this section. See footnote 9.
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Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

begin with an S. designation. In order to become law, bil s must be passed in identical form by
both houses before presentation to the President for signature.2 Bil s may be used for a variety of
purposes, such as:
 Authorization or reauthorization of federal policies, programs, and activities;3
 Amendment of existing law;
 Establishment of federal departments and agencies or alteration of their structure;
 Revenue (tax) legislation (originates in House only);4
 Regular annual general appropriations;5
 Supplemental appropriations;6
 Reconciliation bil s;7 and
 Private bil s.8
Joint Resolutions (S.J.Res. or H.J.Res.)
Like bil s, joint resolutions are lawmaking vehicles and must be agreed to by both houses in
identical form. Excepting those measures that propose amendments to the U.S. Constitution, they
are presented to the President for signature. However, they may differ from bil s in their purpose.9
The uses of joint resolutions include:
 Proposed constitutional amendments;10
 Declaration of war or authorization of military force;11
 Continuing resolutions;12

2 For an explanation of what happens to bills and joint resolutions once they have been presented to the President, see
CRS Infographic IG10007, Presentation of Legislation and the Veto Process, by Meghan M. Stuessy.
3 See CRS Report R46497, Authorizations and the Appropriations Process, by James V. Saturno.
4 See CRS Report R46558, The Origination Clause of the U.S. Constitution: Interpretation and Enforcement, by James
V. Saturno.
5 See CRS Report R42388, The Congressional Appropriations Process: An Introduction , coordinated by James V.
Saturno.
6 See CRS Report R42388, The Congressional Appropriations Process: An Introduction , coordinated by James V.
Saturno.
7 Reconciliation bills alter spending authority pursuant to instructions in a congressional budget resolution. See CRS
Report R40480, Budget Reconciliation Measures Enacted Into Law: 1980 -2017, by Megan S. Lynch.
8 Private bills provide specified benefits to named individuals or entities. See CRS Report R45287, Private Bills:
Procedure in the House, by Christopher M. Davis.
9 While bills are most often used for general legislation, joint resolutions are used, according to the House Manual, “for
what may be called the incidental, unusual, or inferior purposes of legislating.” However, according to former Senate
Parliamentarian Floyd Riddick, “ In modern usage, the contents of bills and joint resolutions often become
indistinguishable.” U.S. Congress, House, Constitution, Jefferson’s Manual and Rules of the House of Representatives
of the United States One Hundred Sixteenth Congress (hereinafter House Manual), prepared by T homas J. Wickham,
Parliamentarian, 115th Cong., 2nd sess., 2019, H.Doc. 115-177 (Washington: GPO, 2019), §397; Floyd M. Riddick and
Alan S. Frumin, Riddick’s Senate Procedure: Precedents and Practices (hereinafter Riddick’s Senate Procedure),
S.Doc. 101-28, 101st Cong., 2nd sess. (Washington: GPO, 1992), p. 225.
10 Congressional passage of constitutional amendments requires a two-thirds vote in each house.
11 See CRS Report RL31133, Declarations of War and Authorizations for the Use of Military Force: Historical
Background and Legal Im plications, by Jennifer K. Elsea and Matthew C. Weed.
12 Continuing resolutions, also known as CRs, extend appropriations for specified purposes until regular appropriations
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Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

 Transfers of appropriations;
 Adjustments of debt limit;13
 Declarations of commitment to treaty or abrogation (repeal) of treaty;
 Alteration of date for convening of Congress;14
 Resolutions of disapproval or approval of specified executive;15
 Extensions of expiration or reporting dates under existing law;
 Congratulations, condolences, condemning actions, welcomes, thanks, etc.;16 and
 Recognition of and support for commemorative periods.17
Concurrent Resolutions (S.Con.Res. or H.Con.Res.)
Congress uses concurrent resolutions to regulate the joint affairs of the House and Senate. In
order to go into effect, concurrent resolutions must be agreed to by both the House and Senate.
They are not lawmaking vehicles and are not submitted to the President for approval. Concurrent
resolutions are designated by an S.Con.Res. or H.Con.Res., depending on the chamber of origin.
Concurrent resolutions may be used for purposes that include:
 Congressional budget resolutions,18
 Adjournment sine die,19
 Recess of either or both houses of more than three days,20
 Providing for a joint session of Congress,

are enacted. See CRS Report R46595, Continuing Resolutions: Overview of Com ponents and Practices, coordinated by
Kevin P. McNellis.
13 See CRS In Focus IF10292, The Debt Limit, by Grant A. Driessen.
14 See CRS Report R42977, Sessions, Adjournments, and Recesses of Congress, by Richard S. Beth and Valerie
Heitshusen.
15 Resolutions of disapproval or approval are pursuant to a statute making a contingent delegation of authority (e.g., the
Congressional Review Act, the National Emergencies Act, and the War Powers Resolution). See CRS Report R43992,
The Congressional Review Act (CRA): Frequently Asked Questions, by Maeve P. Carey and Christopher M. Davis.
16 T his may also be done by simple or concurrent resolution. See CRS Report R43539, Commemorations in Congress:
Options for Honoring Individuals, Groups, and Events, coordinated by Jacob R. Straus.
17 House Rule XII, clause 5, prohibits measures that establish a commemorative, which is defined as “a remembrance ,
celebration, or recognition for any purpose through the designatio n of a specified period of time” (House Manual,
§823). See CRS Report R44431, Com m emorative Days, Weeks, and Months: Background and Current Practice , by
Jacob R. Straus and Jared C. Nagel.
18 T he budget resolution “ provides the framework for subsequent legislative action on the annual appropriations bills,
revenue measures, debt -limit legislation, reconciliation legislation (if required), and any other budgetary legislation .”
See CRS Report 98-512, Form ulation and Content of the Budget Resolution , by Bill Heniff Jr.; and CRS Report
R46240, Introduction to the Federal Budget Process, by James V. Saturno.
19 Sine die is the final adjournment of a congressional session. T he Latin phrase is translated as “without day” (or
without a date assigned for resumption). See CRS Report R42977, Sessions, Adjournm ents, and Recesses of Congress,
by Richard S. Beth and Valerie Heitshusen.
20 Under the U.S. Constitution, the House and Senate are restricted in their ability to adjourn without the approval of
the other chamber. Article I, Section 5, clause 4 , states: “ Neither House, during the session of Congress, shall, without
the Consent of the other, adjourn for more than three days.” T he House and Senate agree to a concurrent resolution
when one or both houses expect to adjourn or stand in recess for more than three calendar days. (In order to fulfill the
constitutional requirement, the House and Senate may also conduct pro form a sessions at least every third day.) See
CRS Report R42977, Sessions, Adjournm ents, and Recesses of Congress, by Richard S. Beth and Valerie Heitshusen.
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Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

 Creation of a joint committee,
 Correction of conference reports or enrolled bil s,21
 Request for return of measures presented to the President,22 and
 “Sense of Congress” resolutions.23
Simple Resolutions (H.Res. or S.Res.)24
Simple resolutions concern the internal affairs of one chamber. They are not used to make law
and accordingly do not require the approval of the other house of Congress. Simple resolutions
are used for adopting chamber rules, committee assignments, discipline of Members, expressions
of sentiment, and other housekeeping purposes in each chamber. Uses include:
 Adoption or amendment of House or Senate rules;25
 Special rules (for considering a measure) or other “order of business resolution”
(House);26
 Establishment of a standing order (primarily Senate);27
 Privileges of the House resolution (House);28
 “Blue slip resolutions” (House);29
 Disposition of contest to a Member’s election;30
 Expulsion of a Member;31

21 See CRS Report RL34480, Enrollment of Legislation: Relevant Congressional Procedures, by Valerie Heitshusen.
22 See CRS Report RL34480, Enrollment of Legislation: Relevant Congressional Procedures, by Valerie Heitshusen.
23 “Sense of Congress” concurrent resolutions are nonbinding. T hey may express “fact, principles, opinions, and
purposes of the two houses” (House Manual, §396). “Sense of Congress” provisions may also appear in lawmaking
measures. See CRS Report 98-825, “Sense of” Resolutions and Provisions, by Christopher M. Davis.
24 Simple resolutions are designated by H.Res. or S.Res, followed by a number, except Senate resolutions of advice and
consent to ratification of treaties. T hese Senate resolutions are not identified by S.Res. and are not numbered.
25 See CRS Report R45787, House Rules Changes Affecting Floor Proceedings in the 116th Congress (2019 -2020), by
Jane A. Hudiburg; CRS Report R45731, House Rules Changes Affecting Com m ittee Procedure in the 116th Congress
(2019-2020), by Jane A. Hudiburg; CRS Report R45552, Changes to House Rules Affecting the Congressional Budget
Process Included in H.Res. 6 (116th Congress), by James V. Saturno and Megan S. Lynch; and CRS Report R42929,
Procedures for Considering Changes in Senate Rules, by Richard S. Beth.
26 See CRS Report 98-354, How Special Rules Regulate Calling up Measures for Consideration in the House, by
Richard S. Beth.
27 Standing orders have the same force as Senate Rules. Some standing orders are in effect only for the duration of a
Congress and are usually established by unanimous consent. Standing orders that continue in effect unless abolished
are usually established by the adoption of simple resolutions. See CRS Report R42929, Procedures for Considering
Changes in Senate Rules, by Richard S. Beth.
28 Privileges of the House resolutions are used to secure the chamber’s rights, safety, dignity, or integrity of
proceedings. Such resolutions are considered under procedures delineated in House Rule IX ( House Manual, §§698-
713). See CRS Report R44005, Questions of the Privileges of the House: An Analysis, by Megan S. Lynch.
29 T he House uses “blue slip resolutions” to return Senate-originated tax legislation in violation of Article 1, Section 7,
clause 1, of the U.S. Constitution: “ All bills for raising revenue shall originate in the House of Representatives; but the
Senate may propose or concur with amendments as on other bills.” See CRS Report RS21236, Blue-Slipping:
Enforcing the Origination Clause in the House of Represen tatives, by James V. Saturno.
30 See CRS Report RL33780, Procedures for Contested Election Cases in the House of Representatives, by L. Paige
Whitaker.
31 Requires a two-thirds vote of the chamber as provided by Article I, Section 5, clause 2 , of the U.S. Constitution. See
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Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

 Censure or other discipline of a Member;32
 Citation for contempt of Congress;33
 Authorization of response to subpoena by Members, chamber officers, or
employees;
 Resolutions of ratification (Senate);34
 Election of committee members or chamber officers;35
 Committee funding;36
 Authorization of expenditures from the contingent fund of the Senate or from the
applicable accounts of the House of Representatives;
 Creation of a special or select committee;37
 Resolutions of inquiry (primarily House);38
 Providing notifications to the other house or the President;
 Requests for the other house to return a measure for correction;39
 Discharge of committee from a measure, nomination, or treaty (Senate);40
 Instructions to conferees already appointed (Senate);41
 Establishment of, requests for establishment of, or recognition of and support for,
commemorative periods (primarily Senate);42 and
 “Sense of the Senate” or “sense of the House.”43

CRS Report R45078, Expulsion of Mem bers of Congress: Legal Authority and Historical Practice, by T odd Garvey.
32 See CRS Report RL30764, Enforcement of Congressional Rules of Conduct: A Historical Overview, by Jacob R.
Straus.
33 See CRS Report R45653, Congressional Subpoenas: Enforcing Executive Branch Compliance, by T odd Garvey.
34 Provides for the Senate’s advice and consent to the ratification of treaties. Resolutions of ratification are simple
resolutions, but they are not designated by S.Res. followed by a number. T he Senate’s actions concerning the un -
numbered resolution of advice and consent are listed with the T reaty Doc. number in Congress.gov. See CRS Report
98-384, Senate Consideration of Treaties, by Valerie Heitshusen.
35 See CRS Report RL33220, Support Offices in the House of Representatives: Roles and Authorities, by Ida A.
Brudnick.
36 See CRS Report R42778, House Committee Funding: Description of Process and Analysis of Disbursements, by
William T . Egar; and CRS Report R40424, Senate Com m ittee Funding Requests and Authorizations, 106th-116th
Congresses, by William T . Egar.
37 Special and select committees are usually advisory or investigative in nature and may operate during a specified time
period (e.g., the duration of a session or Congress). T hey may be established via a provision in a resolution adopting
chamber rules (primarily House) or in a stand-alone House or Senate resolution. See CRS Report 98-241, Com m ittee
Types and Roles, by Valerie Heitshusen.
38 Resolutions of inquiry are requests for factual information from the executive branch. See CRS Report R40879,
Resolutions of Inquiry: An Analysis of Their Use in the House, 1947 -2017, by Christopher M. Davis.
39 See CRS Report 98-826, Engrossment, Enrollment, and Presentation of Legislation, by R. Eric Petersen.
40 See “Discharge of Committees,” Riddick’s Senate Procedure, pp. 802-806.
41 See CRS Report RS20209, Instructing Senate Conferees, by Richard S. Beth.
42 House Rule XII, clause 5, prohibits the introduction and consideration of measures that establish a commemorative,
which the rule defines as “ a remembrance, celebration, or recognition for any purpose through the designatio n of a
specified period of time” (House Manual, §823). See CRS Report R44431, Com m emorative Days, Weeks, and Month s:
Background and Current Practice, by Jacob R. Straus and Jared C. Nagel.
43 “Sense of the House” and “Sense of the Senate” provisions are nonbinding and may also appear in lawmaking
measures. T hey express fact, principles, opinions, or purposes of one house (House Manual, §395). See CRS Report
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The Senate’s Executive Business
Article II, Section 2, of the U.S. Constitution grants the President the power to make treaties and
appoint “Ambassadors, other public Ministers and Consuls, Judges of the supreme Court, and al
other Officers of the United States” whose appointments are established by law by and with “the
Advice and Consent of the Senate.” Treaty approval requires the consent of “two thirds of the
Senate.” Nominations are approved by “a majority of Senators present and voting, a quorum
being present.”44 See the citations for relevant CRS reports.
Nominations (PN)
Nominations are designated by PN followed by a number. PN refers to presidential nominating
message. The nominating message may contain more than one nomination. Conversely, a
renominated nominee, or one nominated for more than one position, wil be associated with more
than one PN number. Thus, the designation PN100 refers to the 100th presidential nominating
message received by the Senate during a Congress, not the 100th nomination submitted by the
President.
Nominations that are stil pending at the end of a congressional session, or when the Senate
recesses for more than 30 days, are returned to the President unless the Senate, by unanimous
consent, orders them not to be returned. Senate confirmation, however, must occur before the end
of a Congress.45
Treaties (Treaty Doc.)
Treaties are designated by Treaty Doc. (or Treaty Document) followed by a compound number.46
The number indicates the Congress and sequence in which the treaty and any accompanying
materials was received by the Senate. For instance, Treaty Doc. 115-3 was the third treaty
document received in the 115th Congress.
The Senate provides “advice and consent” to treaties by agreeing to a “resolution of advice and
consent to ratification.” This resolution is a simple resolution, but it is not identified by S.Res. or
a number. Instead, the Senate’s actions regarding the treaty and the advice and consent resolution
are noted under the Treaty Doc. listing in Congress.gov.
Treaties do not have a deadline for Senate approval. Unless they are withdrawn by the President
or acted on by the Senate, they remain pending for an indefinite number of Congresses.47

98-825, “Sense of” Resolutions and Provisions, by Christopher M. Davis.
44 For more information regarding executive business procedure, see CRS Report 98-384, Senate Consideration of
Treaties, by Valerie Heitshusen; and CRS Report RL31980, Senate Consideration of Presidential Nom inations:
Com m ittee and Floor Procedure, by Elizabeth Rybicki.
45 See CRS Report RL31980, Senate Consideration of Presidential Nominations: Committee and Floor Procedure, by
Elizabeth Rybicki.
46 Before the 97th Congress, the form used was “Ex.” followed by a sequence letter and the number of t he Congress and
session (e.g., Ex. A, 96-1).
47 See CRS Report 98-384, Senate Consideration of Treaties, by Valerie Heitshusen.
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Forms of Business Before Congress
The following table compares al six of the forms of business on which the House or Senate acts
in terms of the following characteristics: designation, origin, deadline for action, requirements for
approval, and product or use.
Table 1. Legislative and Executive Forms of Business
Form of
Deadline
Requirements
Product
Business
Designation0
Origin
for Actionb
for Approval
or Use
Legislative
Bil
S.
Introduced
Final adjournment of a
Both chambers
Law (statute)
H.R.
by Member
Congress
and President
of chamber
Joint
S.J.Res.
Submitted
Final adjournment of a
Both chambers
Law (statute)
Resolution
H.J.Res.
by Member
Congress
and President
(except to
of chamber
amend
Constitution)
Joint
S.J.Res.
Submitted
Final adjournment of a
Both chambers
Constitutional
Resolution
H.J.Res.
by Member
Congressc
(by two-thirds’
amendment
(to amend
of chamber
vote)c
Constitution)
Concurrent
S.Con.Res.
Submitted
Final adjournment of a
Both chambers
Regulation of
Resolution
H.Con.Res.
by Member
Congress
Congress as a
of chamber
whole
Resolution
S.Res.
Submitted
Final adjournment of a
Chamber of
Regulation of
(“simple
H.Res.
by Member
Congress
origin
chamber of
resolution”)
of chamber
origin
Executive
Nomination
PNd
Transmitted
Adjournment of a
Senate
Confirmation
(Senate only)
by President
session of the Senate,
(advice and
or a Senate recess of
consent
over 30 dayse
to appointment)
Treaty
Treaty Doc.a
Transmitted
Indefinite
Senate
Advice and
(Senate only)
by President
(by two-thirds’
consent
vote)
to ratification
Source: Congressional Research Service.
Notes:
a. Designations beginning with “S.” are used for Senate measures, those beginning with “H.” for House
measures. For each form of business, within each Congress, the designation is fol owed by a sequence
number (e.g., “H.R. 1” or “PN100”).
b. Deadline unless the business is earlier disposed of or (for nominations and treaties) unless withdrawn by the
President.
c. After action by Congress, the amendment must also be ratified by three-fourths of the states, often within a
time period specified in the joint resolution.
d. A PN number designates a presidential nominating message, which may contain more than one nomination.
e. Deadline unless, when the Senate recesses or adjourns its session, it orders that nominations, or specified
ones, not be returned to the President. The maximum deadline is the final adjournment of a Congress.
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Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use

f.
This designation is fol owed by the number of the Congress and a sequence number (e.g., “Treaty Doc. 110 -
1”). Before the 97th Congress, the form used was “Ex.” fol owed by a sequence letter and the number of
the Congress and session (e.g., “Ex. A, 96-1”).

Author Information

Jane A. Hudiburg

Analyst on Congress and the Legislative Process

Acknowledgments
Richard S. Beth, Specialist on Congress and the Legislative Process (retired), prepared Table 1
and is the author of two CRS reports that provided the basis for this report: 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.

Disclaimer
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