How a Bill Becomes a Law in Texas: Navigating the 89th Legislative Session

Article by: Law Clerk, Jose De LunaThe Texas Legislature is currently in its 89th Regular Session — a period of just 140 daysthat occurs every odd-numbered year. During this compressed window, the Legislaturemust pass all laws, along with the state's two-year budget. Understanding how a billactually becomes law in Texas is critical, especially when terms like “passed,”“engrossed,” and “advanced” are often thrown around interchangeably, despite havingvery specific meanings.Beginning with the BasicsThe Texas Legislature is made up of 181 members — 31 Senators and 150Representatives. In each session, the House elects its own Speaker to lead, while theSenate is presided over by the Lieutenant Governor. Three figures — often called the“Big Three” — set the tone for the session: the Speaker of the House, the LieutenantGovernor, and the Governor. Together, they influence which priorities move quickly andwhich proposals face tougher paths.Authorship and SponsorshipEvery bill starts with an author (the legislator who introduces it). In the other chamber,a sponsor will guide the bill through the process. Legislators can also sign on as jointauthors, co-authors, joint sponsors, and co-sponsors, depending on their level ofsupport and the chamber involved.First Reading and Referral to CommitteeOnce filed, a bill receives its first reading (announcement) and is referred to acommittee. The Speaker or Lieutenant Governor assigns the committee based on subjectmatter. Contrary to common assumptions, a bill being “read” at this point does notmean it is debated or fully considered — it is simply assigned for further work.Committee ActionCommittees play a powerful gatekeeping role. They can hold hearings, allow publictestimony, and revise bills — sometimes replacing the entire text with a committeesubstitute. If the committee approves the bill, it issues a committee report (including thebill text, fiscal note, witness lists, and recommendations) and sends the bill back to thefull chamber.Calendars and Floor DebateBefore a bill is debated, it must be scheduled.

• In the House, the Calendars Committee or Local and Consent CalendarsCommittee determines when a bill will reach the floor.
• In the Senate, most bills must be placed on the Intent Calendar and then receiverecognition from the Lieutenant Governor to be considered.

In both chambers, second reading occurs when a bill is formally debated and can beamended. Third reading is the final vote in that chamber. Only after successfully passingall three readings in one chamber does the bill move to the other chamber, where theprocess starts over.Engrossed, Passed, and Enrolled:

• A bill that passes its original chamber is engrossed, meaning it’s finalized andsent to the other chamber.
• After passing both chambers, it is enrolled, meaning it’s formally prepared forthe Governor’s consideration.
• Thus, a bill being “passed” in one chamber is not the same as being “passed intolaw.” It still has many steps to go.

The Governor’s Role and Becoming LawIf the second chamber amends a bill, the original author must agree to the changes. Ifnot, a conference committee made up of members from both chambers is formed toreconcile differences. Both chambers must then approve the conference committee’sfinal version.Once a bill reaches the Governor, three outcomes are possible:

• Sign it into law;
• Veto it; or
• Allow it to become law without a signature.

If the Governor vetoes a bill while the Legislature is still in session, lawmakers canattempt to override the veto with a two-thirds majority in each chamber. Bills passed inthe final days of session are especially vulnerable, as the Legislature usually adjournsbefore it can attempt an override.Assuming success, most bills take effect on the 91st day after final adjournment, unlessotherwise specified.Conclusion:The process of creating laws in Texas is deliberate, complex, and designed to requiremultiple layers of scrutiny, debate, and consensus. By understanding each step, fromfiling and committee work to floor debate and the Governor’s desk, we can betterappreciate not only how laws are made, but also the level of thought, advocacy, andnegotiation required to shape Texas’ future.