HOW LAWS ARE MADE. [Footnote:  The Minnesota process, given as a type.]

Framing a Bill.—­A bill is a proposed law.  The framing or drawing up of a bill may be done by any person.  For instance, a citizen desiring legislation on any matter may formulate a bill for consideration by the legislature.  But many requests for legislation come in the form of petitions, in which case the member to whom the matter is committed by the petitioners usually frames the bill.  Many bills originate in committee, some of them as substitutes.

Bringing in.—­At the time set in the daily order of business for introducing bills, the member announces his bill by title, which should indicate the matter considered therein, and sends it to the clerk’s desk.

First Reading.—­No bill can pass without at least three readings.  When a bill is first presented, the clerk reads it at the table, and hands it to the speaker, who, rising, states to the house the title of the bill, and that this is the first reading of it.

Commitment.—­Unless objection is made, the bill, if not one which has been formulated by a committee, is then referred for careful consideration to a committee, standing or special.  The number of subjects coming before a legislative body is too great to permit the initial consideration of each by the whole body.  It is a note-worthy fact that our lawmaking is virtually committee legislation.  All bills for appropriating money shall before passage be referred to the finance committee.

Second Reading.—­When reported favorably by the committee, with amendments, such amendments must be read in full, and if they are adopted the bill passes to its second reading, which is by title only.  If the bill is of a general nature, it is printed and placed on the General Orders or list of bills ready for consideration by the committee of the whole.

Committee of the Whole.-This consists of the entire membership of the house.  Its work is to perfect bills before they come up for final passage.  To this end great freedom of debate is permitted.  This is the last opportunity to offer amendments, except by unanimous consent.  When the house resolves itself into committee, the regular presiding officer leaves the chair after designating a member to act as chairman.  When the committee rises, the presiding officer resumes the chair and the chairman of the committee reports its action.  Bills reported favorably are engrossed, that is, rewritten neatly as amended, and are placed on the Calendar, or list of bills ready for third reading.

Third Reading.—­This is in full, and the question is on the passage of the bill.  If passed the bill is sent to the other house, with the announcement that it has passed the first house.

Action in other House.—­The bill is treated in the other house as in the first.  If passed, it is returned similarly to the house in which it originated.  If passed with amendments, these are considered.  ENROLLMENT.—­ When it has passed both houses, the bill is plainly and accurately written on parchment, under supervision of the committee on enrolled bills.