Editor’s Note: This article was originally written by Jennifer Gilroy, Michael Dohr, and Jessica Chapman and published on December 15, 2022. The article has been edited and updated.
by Alana Rosen
Bill drafting season is well underway at the Office of Legislative Legal Services, which means now is probably a good time to review some of the basics of bill sponsorship.
Prime Sponsorship Basics
Prime Sponsorship – First Chamber. The legislator who introduces and carries a bill is called the prime sponsor of the bill. Bills cannot be introduced without a prime sponsor. In both the House and the Senate, the prime sponsor (and joint prime sponsor if there is one) is responsible for explaining the bill in committee and in debate on the House or Senate floor. A prime sponsor also typically arranges for witnesses to testify in favor of the bill in committee.
A legislator can be the first prime sponsor or joint prime sponsor for only five bills, unless the legislator has special permission from the Committee on Delayed Bills (also known as leadership) to carry more. But a legislator can agree to be the prime sponsor or joint prime sponsor of a bill in the second chamber on as many bills as the legislator wants.
Prime Sponsorship – Second Chamber. The prime sponsor in the first chamber (also known as the house of introduction) is responsible for asking a legislator in the second (or opposite) chamber to carry the bill in the second chamber. The prime sponsor in the first chamber does not have to identify a prime sponsor in the second chamber before the bill is introduced in the first chamber, but the bill must have a prime sponsor in the second chamber before the bill can be heard on third reading in the first chamber.
Before a bill can move to the second chamber, the prime sponsor in the second chamber must inform the House Chief Clerk or the Secretary of the Senate of that legislator’s intent to serve as the prime sponsor in the second chamber. Prime sponsors’ names in both chambers are listed on the bill in bold text.
Joint Prime Sponsorship Basics
Joint Prime Sponsorship. When two legislators in one chamber want to carry a bill together, they are referred to as joint prime sponsors. A bill that has joint prime sponsors in one chamber may or may not have joint prime sponsors in the other chamber. The rules for joint prime sponsorship are similar for the House (House Rule 27A(b)) and the Senate (Senate Rule 24A(b)).
For legislators who joint prime sponsor a bill in the first chamber, the joint prime sponsorship counts against both legislators’ five-bill limit. Both joint prime sponsors must verify their desire to be joint prime sponsors. A legislator cannot be added as a joint prime sponsor in the first chamber if that legislator has already submitted five bill requests, unless that legislator has received permission from leadership. The prime sponsor in the first chamber must notify the House Chief Clerk or the Secretary of the Senate, as appropriate, of any changes in bill sponsorship so that the changes are reflected in subsequent versions of the bill.
Joint prime sponsorship does not count against the five-bill limit for either legislator in the second chamber. Again, both joint prime sponsors must verify their desire to be joint prime sponsors.
Joint prime sponsors are typically determined prior to the bill’s introduction. However, in limited circumstances, joint prime sponsors may be added or changed after introduction immediately after second reading but prior to adoption of the bill on third reading. The House and Senate front desk staff can help with this process.
Sponsorship and Co-sponsorship Basics
Sponsorship and Co-sponsorship. When legislators want to show support for a bill, but not take on the responsibility of actually carrying the bill, they may sign on as sponsors or co-sponsors of the bill. If a legislator adds their name to a bill before it is introduced, the legislator is a sponsor of the bill. If a legislator adds their name to a bill after it is introduced, the legislator is referred to as a co-sponsor. Co-sponsors are added immediately following adoption of a bill on third reading. Sponsorship or co-sponsorship does not count against the legislator’s five-bill limit.
Bill Sponsor FAQs:
- How do I add sponsors to my bill before it is introduced?
You may add prime sponsors, joint prime sponsors, and sponsors in two ways if the bill is still in the Office’s possession:
- Before your bill is introduced, you, the bill sponsor, may notify the drafter in person, by phone, or by email that you would like to add a legislator as a prime sponsor, joint prime sponsor, or sponsor to your bill. To add a prime sponsor or joint prime sponsor, the drafter will need permission from both you and the legislator who will be added as the prime sponsor or joint prime sponsor. This process is referred to as “sponsorship verification”. Please remember that if the joint prime sponsor in the first chamber has already requested or introduced five bills, that joint prime sponsor must obtain delayed bill permission from the appropriate Committee on Delayed Bills. To add a sponsor, the drafter will need permission only from the legislator being added as a sponsor. Please give your drafter ample time to verify prime sponsorship, joint prime sponsorship, or sponsorship before the bill is scheduled to be filed for introduction.
- Before your bill is introduced, you can also invite other legislators to sponsor your bill via the Electronic Sponsorship feature in iLegislate. Electronic Sponsorship operates similarly to an Evite: You may invite legislators to sponsor your bills and you may share draft files with them. Those legislators may choose whether they want to be a sponsor on your bill.
Once your bill is delivered by the Office to your chamber’s front desk, the Office cannot add any more sponsors. In special circumstances, the House or Senate front desk staff may be able to add sponsors before a bill is printed, but you must contact your chamber’s front desk staff to see if this special circumstance exists.
The Office will deliver your prefile bill (your first bill to be introduced) directly to the House or Senate front desk because that bill must be ready for introduction on the first day of session. The Office will deliver your other bills to the front desk or to you, as you direct. Do not contact the Office to add sponsors after your bill has been delivered to the front desk or to you. Once a bill is delivered, all sponsor additions or changes must go through House or Senate staff.
2. How do I add sponsors to my bill after it is delivered for introduction?
If you direct the drafter to deliver your bill (other than your prefile bill) to you personally and not your chamber’s front desk, Office staff will give the bill to the sergeants who will then deliver it to you. If the bill is delivered to you prior to its introduction deadline you can show it to other legislators and have them sign the sponsor form attached to the bill or go through iLegislate. The bill delivered to you will include a sponsor form stapled to a heavier sheet of green paper (if you’re a Representative) or cream-colored paper (if you’re a Senator). This is called a bill back. Please do not separate the bill from the bill back and sponsor form.
After you give the bill back (and attachments) to the House or Senate front desk staff, the House or Senate front desk staff will review the sponsor form and add the names of those legislators who have signed the form indicating their desire to be sponsors of your bill. These sponsor names will appear on the introduced version of the bill. Sponsors cannot be added to your bill after the House or Senate front desk staff have submitted it for printing. After your bill has been introduced, however, other legislators may add their names as co-sponsors following passage of your bill on third reading.
Feel free to contact the Office staff, your drafters, or the House and Senate front desks with any questions regarding bill sponsorship. You may contact Office staff to inquire about sponsorship prior to the delivery of your bill to the House or Senate for introduction, at (303) 866-2045 or olls.ga@coleg.gov. Once your bill has been delivered for introduction, you may contact the House or Senate front desk staff with your sponsorship questions.
