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Firstly, a non-law has to be "noticed" and it has to cause some kind of issue.
Secondly, once its noticed, a member of Congress must introduce it to the House of Representatives.
Then, the bill is sent to a committee, where its decided whether it should be debated or not, and some debating rules are established.
After its "accepted" by the committee, the Senate and House debate and compromise the bill, and if its accepted by both, it gets sent to the president.
But, if the House rejects any "changes", the bill is sent to another (conference) committee. There, both houses have to agree and eventually make a compromise.
Finally, if the bill is passed by both houses, the president decides whether its approved or vetoed. If 2/3's of both houses vote to override the veto, then the bill is passed.
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