How a Bill Becomes a Law

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Section 1 of Article VI of 1987 Constitution states that the legislative power is vested in the Congress of the Philippines. In other words, it is the legislative department responsible to prescribe general rules for the government. 

According to de Leon, H. (2005), this legislative function involves the determination of the legislative policy as a defined binding rule of conduct through the enactment of law. In crafting laws, the legislative body comes out with two main documents: bills and resolutions. Resolutions is defined as a formal expression of opinion, will or intent of the Senate or the House of Representatives. 

Resolutions can be classified as simple, if passed by either House for its exclusive use or purpose; concurrent, if passed independently in one House and ratified by the other in the same manner as a bill; and joint, if approved by both Houses meeting in joint session but voting separately (e.g., proposing amendments to the Constitution). The 1987 Constitution does not require the approval of any kind of resolution. 

On the other hand, bills are laws in the making. These became laws after being approved by both houses and the President of the Philippines. However, a bill may be vetoed by the President, but the House of Representatives may overturn a Presidential veto by garnering a 2/3rds vote. If the President does not act on a proposed law submitted by Congress, it will lapse into law after 30 days of receipt. 

Steps in the Passage of the Bill into a Law

The first step is, of course, the preparation of the bill. The Member or the Bill Drafting Division of the Reference and Research Bureau prepares and drafts the bill upon the Member's request. The bill is filed with the Office of the Secretary. A bill filed in the House is labeled “H.B” and if in the Senate, “SB”. Each bill is given a corresponding number. It is then calendared for first reading. 

Next, a first reading takes place where the bill’s title, number and name(s) of author(s) is/are read on the floor. In this step, the principal author may propose the inclusion of additional authors thereof. 

After the first reading, it is referred to the appropriate Committee(s) for study and consideration. The committee conducts hearings and consultation meetings. It then either approves the proposed bill without an amendment, approves it with changes, or recommends substitution or consolidation with similar bills filed. If the bill is disapproved, it dies a natural death. On the contrary, if the committee reports the bill favorably, the bill is forwarded to the Committee on Rules. It is then included in the Calendar of Business for deliberation on the next reading. 

Thereafter, a second reading is held. The bill is read again for the second time with the amendments, if any, proposed by the committee. The author delivers sponsorship speech. After this, a general debate is opened where the Members of the House and the Senate engage themselves in an interpellation, turno en contra, and rebuttal to highlight the pros and cons of the bill. A period of amendments may be proposed by the committee or by the Members and this shall be done in accordance with the rules of either House. The Members then vote on the second reading version of the bill. If approved, the bill is calendared for third reading. However, if the result is unfavorable, it is transmitted to the archives. 

After the approval in the Second Reading, the bill is printed in its final version and copies are distributed among the members of the House three days before its passage except in the case of bills certified by the President. 

Then, a third reading is conducted where only the title of the bill is read on the floor. Afterwards, a roll call or a nominal voting is held and a Member, if he desires, is given three minutes to explain his vote. A member may abstain. This time, no amendment is allowed. A majority vote of the members constituting the quorum is enough to pass the bill. If disapproved, again, it is transmitted to the archives. 

If the bill is approved, the bill is referred to the other House where substantially the same procedure is used. So, the bill undergoes the First Reading and so on, in the other House. If the other House approved the bill without amendments, the final version is signed by the Senate President and the Speaker of House of Representatives. 

In case there are some amendments, a Bicameral Conference Committee is constituted which is composed of the Members from each House of Congress to settle, reconcile or thresh out differences or disagreements on any provision of the bill. If either House accepts the changes made by the other, no compromise is necessary. 

Copies of the bill, signed by the Senate President and the Speaker of the House of Representatives and certified by both the Secretary of the Senate and the Secretary General of the House, are transmitted to the President for his action approval or disapproval. He either signs it into a law or vetoes then sends it back with his veto message. 

If he approved the bill, it is assigned an RA number and transmitted to the House where it originated. Copies are sent to the Official Gazette Office or to at least two (2) national newspapers for publication and general circulation. The act shall take effect 15 days after the publication. 

If the President vetoed the bill, the legislative department may decide to accept this decision or override this. The House and the Senate shall proceed separately to reconsider the bill or the vetoed items of the bill. If the bill or its vetoed items is passed by a vote of two-thirds of the Members of both Houses, it shall become a law. 

If the President fails to communicate his veto of the bill to the House where it originated within 30 days from receipt thereof, it becomes a law. 

There are nine (9) steps in the passage of the bill. These can be summarized as: (1) Preparation of the Bill
(2) First Reading
(3) Referral to appropriate Committee 
(4) Second Reading
(5) Printing and Distribution of Copies of the Bill
(6) Third Reading
(7) Referral to the Other House
(8) Creation of Bicameral Conference Committee
(9) Submission to the President.

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