<Li> Simple resolutions concern only the House or only the Senate and begin with "H. Res ." or "S. Res ." </Li> <P> Representatives introduce a bill while the House is in session by placing it in the hopper on the Clerk's desk . It's assigned a number and referred to a committee which studies each bill intensely at this stage . Drafting statutes requires "great skill, knowledge, and experience" and sometimes take a year or more . Sometimes lobbyists write legislation and submit it to a member for introduction . Joint resolutions are the normal way to propose a constitutional amendment or declare war . On the other hand, concurrent resolutions (passed by both houses) and simple resolutions (passed by only one house) do not have the force of law but express the opinion of Congress or regulate procedure . Bills may be introduced by any member of either house . However, the Constitution states, "All Bills for raising Revenue shall originate in the House of Representatives ." While the Senate cannot originate revenue and appropriation bills, it has power to amend or reject them . Congress has sought ways to establish appropriate spending levels . </P> <P> Each chamber determines its own internal rules of operation unless specified in the Constitution or prescribed by law . In the House, a Rules Committee guides legislation; in the Senate, a Standing Rules committee is in charge . Each branch has its own traditions; for example, the Senate relies heavily on the practice of getting "unanimous consent" for noncontroversial matters . House and Senate rules can be complex, sometimes requiring a hundred specific steps before becoming a law . Members sometimes use experts such as Walter Oleszek, a senior specialist in American national government at the Congressional Research Service, to learn about proper procedures . </P> <P> Each bill goes through several stages in each house including consideration by a committee and advice from the Government Accountability Office . Most legislation is considered by standing committees which have jurisdiction over a particular subject such as Agriculture or Appropriations . The House has twenty standing committees; the Senate has sixteen . Standing committees meet at least once each month . Almost all standing committee meetings for transacting business must be open to the public unless the committee votes, publicly, to close the meeting . A committee might call for public hearings on important bills . Each committee is led by a chair who belongs to the majority party and a ranking member of the minority party . Witnesses and experts can present their case for or against a bill . Then, a bill may go to what's called a mark - up session where committee members debate the bill's merits and may offer amendments or revisions . Committees may also amend the bill, but the full house holds the power to accept or reject committee amendments . After debate, the committee votes whether it wishes to report the measure to the full house . If a bill is tabled then it is rejected . If amendments are extensive, sometimes a new bill with amendments built in will be submitted as a so - called clean bill with a new number . Both houses have procedures under which committees can be bypassed or overruled but they are rarely used . Generally, members who have been in Congress longer have greater seniority and therefore greater power . </P>

Who makes the rules for house and senate