Understanding Concurrent, Joint, and Simple Resolutions in the U.S. Congress

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The United States Congress uses several tools to conduct its business beyond the familiar “bills” that become laws. Congress also relies on three types of “resolutions” – Simple, Concurrent, and Joint – each serving distinct purposes. These lesser-known instruments play crucial roles in how our legislative branch operates.

This article explains the differences between these resolutions, their purposes, and why they matter for American governance.

What is a Simple Resolution? (H.Res. / S.Res.)

Simple resolutions are the most limited in scope among the three types, dealing with matters entirely within a single chamber of Congress.

Definition and Designation

A simple resolution is designated with an “H.Res.” if it originates in the House of Representatives, or an “S.Res.” if it originates in the Senate, followed by a unique number assigned in the order of its introduction (e.g., H.Res. 123 or S.Res. 45). These resolutions address issues or actions that concern only the chamber in which they are introduced.

Legislative Process

The journey of a simple resolution is confined to its chamber of origin. It is introduced and considered only within that specific house. A simple resolution requires approval only from the members of that single chamber to be adopted. It does not need to be passed by the other chamber of Congress, nor is it sent to the President for signature or approval.

Legal Force and Scope

Simple resolutions do not have the force of law. Their effect is limited to the internal affairs, operations, procedures, or opinions of the chamber that passes them. They are essentially a way for the House or the Senate to manage its own business or express its collective sentiment on a matter.

Common Uses and Examples of Simple Resolutions

Despite not carrying the weight of law, simple resolutions serve several important functions:

Amending Chamber Rules: A primary use is to establish or change the standing rules of procedure for the House or the Senate (e.g., H.Res. 5, which often contains the House rules package at the beginning of a new Congress). For example, the House of Representatives once amended its rules via simple resolution to allow members to refer to the Senate as “the Senate” instead of “the other body.”

Expressing Sentiments: They are frequently used to express the non-binding views or feelings of a single chamber. This can include offering condolences to the family of a deceased member, congratulating a sports team, or giving “advice” on foreign policy or other executive branch matters.

Creating Special or Select Committees: Simple resolutions are the mechanism by which either the House or Senate can establish special or select committees to conduct investigations or study specific issues.

A notable example is H.Res. 567 from the 113th Congress, which established the House Select Committee on the Events Surrounding the 2012 Terrorist Attack in Benghazi. This committee was tasked with conducting a “full and complete investigation and study” of the Benghazi attack. The creation of such a committee via a simple resolution demonstrates how one chamber can initiate significant, and sometimes politically charged, investigative actions focused on executive branch conduct or national events.

Authorizing Investigations: Beyond creating committees, simple resolutions can authorize existing committees to undertake specific investigations.

Governing Floor Debate: In the House of Representatives, the Committee on Rules reports “rules” for the consideration of most major pieces of legislation. These “rules” are themselves simple resolutions (e.g., H.Res. ___ providing for consideration of H.R. ___). If adopted by the House, this simple resolution dictates the terms of debate for a bill, such as time limits and what amendments, if any, can be offered.

Understanding the Significance of Simple Resolutions

The functions of simple resolutions highlight several important aspects of congressional operations. They underscore the autonomy of each chamber to govern its internal affairs, a principle reflecting the separation of powers even within the legislative branch. Each house can set its own rules and establish its own priorities for internal matters without needing the consent of the other or the President.

Simple resolutions from the House Rules Committee play a critical role in shaping the legislative process. By setting the terms of debate and amendment for bills, these resolutions can significantly influence whether a bill passes, what final form it takes, and how much input minority party members have. Thus, an internal procedural tool can have profound external consequences on the laws that affect all Americans.

“Sense of the House” or “Sense of the Senate” resolutions serve as important political signaling mechanisms. While they don’t create law, they allow a chamber to formally state its position on an issue, potentially influencing public debate, pressuring the executive branch, or signaling intent to the other chamber or international community.

The power to create select committees and authorize investigations through simple resolutions is a cornerstone of Congress’s oversight function. It enables a chamber to scrutinize government actions, investigate wrongdoing, and gather information necessary for future legislation or accountability. The establishment of the Benghazi Select Committee, whatever its political controversies, illustrates the exercise of this investigative power inherent in a single chamber.

What is a Concurrent Resolution? (H.Con.Res. / S.Con.Res.)

Concurrent resolutions represent a step up in coordination, requiring agreement between both the House and the Senate, but still typically falling short of having the force of law.

Definition and Designation

A concurrent resolution is designated “H.Con.Res.” if it originates in the House or “S.Con.Res.” if it originates in the Senate, followed by a number (e.g., H.Con.Res. 50 or S.Con.Res. 25). As the name implies, it is a measure that requires the concurrence, or agreement, of both legislative chambers.

Legislative Process

For a concurrent resolution to be adopted, it must be passed in identical form by both the House of Representatives and the Senate. Unlike bills and most joint resolutions, concurrent resolutions are not presented to the President for signature or approval. Once passed by both chambers, they are attested by the Secretary of the Senate and the Clerk of the House and are often published in the Statutes at Large, a chronological compilation of laws, though they themselves are not laws. The resolving clause for a Senate Concurrent Resolution typically reads: “Resolved by the Senate (the House of Representatives concurring),”

Legal Force and Scope

Concurrent resolutions do not have the force of law. They are generally used to make or amend rules that apply to both houses or to express the sentiments, opinions, or principles of both chambers acting jointly. A key limitation is that concurrent resolutions may not embody legislation; if they were to contain provisions that are legislative in character, the Constitution would require them to be submitted to the President for signature.

Common Uses and Examples of Concurrent Resolutions

Concurrent resolutions serve several distinct purposes for Congress:

Managing Bicameral Affairs:

• Adjournment/Recess: Setting the time for Congress to adjourn for more than three days or to take a recess requires a concurrent resolution.
• Joint Committees: They can be used to create joint committees composed of members from both the House and Senate.
• Joint Sessions: Providing for joint sessions of Congress (e.g., for the President’s State of the Union address).

Expressing Collective Sentiments: Both chambers can use a concurrent resolution to formally express their shared opinion on a particular issue, convey congratulations (e.g., to another country on an anniversary), make statements on public policy, or honor individuals or events. For example, a concurrent resolution might be used to authorize the use of the Capitol Rotunda for a ceremony.

The Congressional Budget Resolution: This is one of the most significant uses of a concurrent resolution. Each year, Congress is supposed to pass a budget resolution that sets overall spending limits, revenue targets, and deficit levels for the upcoming fiscal year and at least the following four fiscal years.

An example is H.Con.Res. 14 (119th Congress), which aimed to establish the congressional budget for Fiscal Year 2025 and set budgetary levels for subsequent years. This resolution, like all budget resolutions, does not go to the President and does not become law, but it provides the framework for subsequent appropriations bills and can include “reconciliation instructions” that trigger a powerful fast-track legislative process.

Correcting Enrolled Bills: They can authorize corrections to minor errors in bills that have already been passed by both chambers but have not yet been signed by the President or have just been signed into law.

War Powers (Historical Context): The War Powers Resolution of 1973 (itself a joint resolution that became law) originally included a provision allowing Congress to direct the President to remove U.S. Armed Forces engaged in hostilities abroad by passing a concurrent resolution. However, the Supreme Court’s decision in INS v. Chadha (1983) effectively invalidated such “legislative vetoes” that do not involve presentment to the President. While the War Powers Resolution text still mentions concurrent resolutions for this purpose, their constitutional viability for compelling troop withdrawal without presidential signature is highly doubtful; a joint resolution (which can become law) or other legislative action is now considered the practical route for such congressional directives.

Understanding the Significance of Concurrent Resolutions

Concurrent resolutions are the primary mechanism for the House and Senate to act in unison on matters that do not require the force of law. This is essential for the internal administration of Congress as a bicameral institution and for expressing the collective will or sentiment of the legislative branch.

The Congressional Budget Resolution stands out as arguably the most impactful type of concurrent resolution. While it doesn’t become law and the President doesn’t sign it, this annual resolution is the blueprint for all federal spending and taxation. It guides the appropriations committees in their work and can dictate major policy changes through the budget reconciliation process. Reconciliation instructions in a budget resolution can allow certain subsequent bills related to spending, revenue, or the debt limit to pass the Senate with only a simple majority vote, bypassing the usual 60-vote threshold needed to overcome a filibuster. This procedural power makes the budget resolution a highly consequential, albeit non-statutory, measure. The adoption of the FY2025 budget resolution, for example, was intended to pave the way for a Republican budget reconciliation bill addressing taxes, border security, defense, energy, and the debt limit.

“Sense of Congress” resolutions, passed concurrently, carry more weight than similar expressions from a single chamber because they represent the unified voice of the entire legislative branch. They can be important tools in foreign policy signaling or in focusing national attention on domestic issues, even without direct legal enforcement.

The history surrounding the War Powers Resolution and concurrent resolutions also offers a critical lesson on constitutional limitations. The INS v. Chadha decision reinforced the principle of separation of powers by affirming that Congress cannot use concurrent resolutions to unilaterally veto executive actions or effectively make law, as such actions would bypass the Presentment Clause of the Constitution, which requires bills passed by Congress to be presented to the President for signature or veto. This underscores that while concurrent resolutions are useful for internal matters and expressions of congressional will, their power does not extend to overriding the President’s role in the lawmaking process.

What is a Joint Resolution? (H.J.Res. / S.J.Res.)

Joint resolutions are powerful legislative instruments that, in most cases, are functionally equivalent to bills in their ability to become law. They also possess a unique and critical role in the process of amending the U.S. Constitution.

Definition and Designation

A joint resolution is designated “H.J.Res.” if it originates in the House of Representatives or “S.J.Res.” if it originates in the Senate, followed by a number (e.g., H.J.Res. 101 or S.J.Res. 5). Like a bill, it is a legislative measure that requires passage by both the Senate and the House of Representatives.

Legislative Process

The path of a joint resolution largely mirrors that of a bill. It must be approved by both chambers of Congress in identical form. Generally, once passed by both houses, a joint resolution is presented to the President for signature. If the President signs it, it becomes law. If the President vetoes it, Congress can override the veto with a two-thirds vote in both the House and Senate, at which point it becomes law without the President’s signature. A joint resolution can also become law if the President takes no action on it for ten days (excluding Sundays) while Congress is in session.

There is one profound exception to the requirement for presidential signature: Joint resolutions proposing amendments to the U.S. Constitution do NOT require the President’s signature. Article V of the Constitution dictates that such resolutions, upon approval by a two-thirds vote in both the House and Senate, are sent directly to the Administrator of General Services (who heads the National Archives and Records Administration) for submission to the individual states for ratification. The President has no formal role in this process.

Legal Force and Scope

When a joint resolution (other than one proposing a constitutional amendment) is signed by the President or a presidential veto is overridden, it has the full force of law, just like a bill passed through the regular legislative process. There is no practical legal difference between a law enacted via a bill and one enacted via a joint resolution; the choice of which vehicle to use is often a matter of tradition or the specific nature of the legislation. Laws enacted by joint resolutions are designated as “Public Law X-Y” just like laws enacted by bills, though their original designation remains “Resolution” rather than “Act”.

Joint resolutions proposing constitutional amendments, once ratified by three-fourths of the states, become part of the Constitution itself, the supreme law of the land.

Common Uses and Examples of Joint Resolutions

Joint resolutions are employed for a wide array of significant legislative actions:

Proposing Amendments to the U.S. Constitution: This is an exclusive and paramount function of joint resolutions.

Historical Example: The first ten amendments to the Constitution, collectively known as the Bill of Rights, were proposed by the First Congress in 1789 as a joint resolution and did not require presidential approval before being sent to the states for ratification.

Continuing or Emergency Appropriations: When regular annual appropriations bills are delayed, Congress typically passes joint resolutions known as “Continuing Resolutions” (CRs) to provide temporary funding for government operations and avert shutdowns. They are also used for emergency appropriations in response to unforeseen events.

Recent Example: Congress passed a continuing resolution to fund the federal government through fiscal year 2025, averting a shutdown. This joint resolution extended FY2024 funding levels with some changes, such as increases for defense and immigration enforcement, and rescinded some IRS funding. Such CRs are critical for maintaining government functions during budget impasses.

Declarations of War and Authorizations for Use of Military Force (AUMFs): Historically, formal declarations of war have been made by joint resolution. More recently, Congress has passed AUMFs, also as joint resolutions, to authorize the President to use military force in specific circumstances or against particular entities.

Historical Example: The Gulf of Tonkin Resolution (Public Law 88-408), passed as a joint resolution in August 1964, granted President Lyndon B. Johnson broad authority to use military force in Southeast Asia, dramatically escalating U.S. involvement in the Vietnam War. This resolution, based on reported attacks on U.S. naval vessels, effectively bypassed a formal declaration of war.

Modern Example: The Authorization for Use of Military Force Against Iraq Resolution of 2002 (Public Law 107-243) was a joint resolution authorizing military action against Saddam Hussein’s regime.

Congressional Review Act (CRA) Resolutions of Disapproval: The CRA allows Congress to overturn rules issued by federal agencies by passing a joint resolution of disapproval. If such a joint resolution is passed by both houses and signed by the President (or a veto is overridden), the agency rule is nullified and the agency is barred from reissuing a substantially similar rule without new statutory authorization.

Recent Example: During the Trump administration, particularly in 2017, 16 CRA joint resolutions were signed into law, overturning a variety of regulations issued late in the Obama administration across areas like environmental protection and labor standards. As of May 2025, the CRA had been used to repeal 23 rules since its enactment.

Other Legislative Matters: Joint resolutions are also used for:

• Creating temporary commissions or other ad hoc bodies (e.g., the 9/11 Commission was established by legislation that included a joint resolution component for funding).
• Making temporary exceptions to existing law.
• Terminating national emergency declarations proclaimed by the President.
• Correcting errors in existing laws or in bills that have already passed both chambers. An example is Public Law 104-140, a joint resolution making corrections to a previously enacted public law.
• The War Powers Resolution of 1973 (Public Law 93-148) itself was enacted as a joint resolution over President Nixon’s veto. This landmark law established procedures for Congress and the President in decisions to commit U.S. armed forces to hostilities.

Understanding the Significance of Joint Resolutions

The broad utility and legal power of joint resolutions make them a cornerstone of the legislative process. Their equivalence to bills in creating law means that Congress has flexibility in how it frames measures intended for statutory effect. The choice between a bill and a joint resolution often comes down to congressional custom, the perceived urgency or specificity of the matter, or the desire to highlight the “joint” agreement of both chambers on a particular action.

The most distinctive and constitutionally significant role of joint resolutions is as the sole gateway for proposing amendments to the U.S. Constitution. This process, requiring supermajorities in Congress and ratification by the states, deliberately makes altering the nation’s foundational document a difficult endeavor. Crucially, by bypassing the President, Article V of the Constitution ensures that amendments arise from the collective will of the people’s representatives in the legislative branch (both federal and state), reinforcing the idea that the Constitution’s legitimacy flows from the populace, not the executive. The introduction of the Bill of Rights as a joint resolution is a testament to this unique power.

The common use of joint resolutions for continuing appropriations (CRs), emergency funding, and temporary commissions highlights their practical importance in addressing time-sensitive or specific governmental needs that might not fit the broader scope of regular bills. CRs, for instance, are vital for preventing government shutdowns when annual budget negotiations stall, ensuring the continuity of federal services.

Finally, the application of joint resolutions to matters of foreign policy and national security—such as declarations of war, Authorizations for Use of Military Force (AUMFs), and the War Powers Resolution itself—underscores their critical role in decisions of utmost national importance. These are among the most consequential actions a government can take, and the use of a joint resolution reflects the constitutional expectation of shared responsibility between Congress and the President (though the balance of this power remains a subject of ongoing debate and tension). The Gulf of Tonkin Resolution serves as a powerful historical example of how a joint resolution can grant sweeping authority and lead to profound, long-lasting consequences, including major military conflict. Similarly, the Congressional Review Act provides a potent, albeit controversial, check on executive branch rulemaking through the mechanism of a joint resolution.

Resolutions Side-by-Side: Key Differences at a Glance

To clearly distinguish between these legislative tools, the following table summarizes their core characteristics:

The choice of which type of resolution to use is not arbitrary; it is a deliberate decision by members of Congress that reflects the intended scope, legal impact, and procedural requirements of the action they wish to take.

Why Understanding These Resolutions Matters for You

Grasping the differences between bills and these three types of resolutions significantly enhances one’s understanding of how Congress functions and how public policy is shaped.

Many people learn about the legislative process primarily through the lens of “how a bill becomes a law.” However, this perspective captures only part of Congress’s work. Many important congressional actions, statements, and internal processes are handled through resolutions, not bills. Recognizing this broader toolkit allows for a more complete picture of legislative activity.

Knowledge of these distinctions is also vital for accurately interpreting news about Congress. When the media reports that “the Senate passed a resolution on X,” the implications are vastly different depending on whether it was an S.Res. (an opinion of the Senate only), an S.Con.Res. (an opinion shared with the House, or a procedural matter like the budget), or an S.J.Res. (a measure that could become law or propose a constitutional amendment). Misunderstanding the type of resolution can lead to common misconceptions, such as believing a “sense of the Senate” resolution has changed a law, when in fact it is a non-binding expression.

The impacts of these resolutions vary widely:

• Simple resolutions directly affect how a particular chamber operates, what rules its members must follow, and which special investigations (like those by select committees) are undertaken.
• Concurrent resolutions demonstrate agreement between both houses on a sentiment or a procedural framework. The congressional budget resolution, for example, doesn’t become law but sets the stage for all federal spending and can have enormous downstream effects on programs and policies.
• Joint resolutions can have the most direct and profound impacts on the public, as they can become binding laws, authorize wars, or even change the U.S. Constitution.

This understanding empowers civic engagement. Citizens who can differentiate these tools can:

• Track issues more effectively (e.g., following the development of the annual budget resolution, knowing it’s a concurrent resolution that frames spending debates).
• Engage with their elected representatives more meaningfully (e.g., advocating for a “sense of Congress” resolution on an important issue, or understanding the gravity when their representative votes on a joint resolution to authorize military force or propose a constitutional change).
• Hold elected officials accountable for a wider range of their actions, not just their votes on bills that become law.

The varied nature of resolutions reflects the multifaceted role of Congress. It is not just a lawmaking body; it is also an institution that manages its own complex operations, conducts oversight of the other branches of government, serves as a forum for national debate, and expresses the nation’s values and concerns. Each type of resolution is a distinct instrument designed to fulfill one or more of these diverse functions.

Finding and Tracking Resolutions: Your Guide to Official Sources

For citizens wishing to follow congressional actions, including all types of resolutions, several official, publicly accessible resources are invaluable:

Primary Official Sources:

• Congress.gov: Managed by the Library of Congress, this is the official website for U.S. federal legislative information. It is the most comprehensive resource for finding the text, status, sponsors, summaries, and legislative actions for all bills and resolutions introduced in the House and Senate. Users can search by the specific resolution number (e.g., “H.Res. 567” or “S.J.Res. 4”), by keyword, by sponsor, or by legislative subject. Understanding the prefixes (H.Res., S.Res., H.Con.Res., S.Con.Res., H.J.Res., S.J.Res.) is key to identifying the type of measure.
• GovInfo.gov: Maintained by the U.S. Government Publishing Office (GPO), GovInfo provides free public access to official publications from all three branches of the Federal Government. This includes enrolled bills (the final versions passed by Congress), public and private laws, the daily Congressional Record (which documents debates, votes, and actions on resolutions), and committee reports. It is particularly useful for finding the final, official versions of legislative documents and historical records.

Chamber-Specific Resources:

• U.S. Senate Official Website (Senate.gov): The Senate’s official website offers useful legislative resources, including pages explaining “Types of Legislation” and a “Key to Legislative Citations” that decodes the various abbreviations used for bills and resolutions.
• U.S. House of Representatives Official Website (House.gov): The House’s website also provides explanations of the legislative process, including information on bills and resolutions.

Tips for Citizens:

• Always pay close attention to the prefix of a legislative measure (H.Res., S.Con.Res., H.J.Res., etc.) as this immediately tells you what kind of measure it is and generally what its potential impact might be.
• Look for key phrases within the title or text of a resolution, such as “expressing the sense of Congress,” “amending the rules of the House,” “proposing an amendment to the Constitution of the United States,” or “making continuing appropriations,” as these indicate the resolution’s specific purpose.
• When following news reports, be mindful of how the term “resolution” is used. Reputable journalism will often clarify the specific type of resolution and its implications.

Access to reliable information is a cornerstone of democratic accountability. The availability of resources like Congress.gov and GovInfo.gov provides a significant degree of transparency in the U.S. legislative process. By utilizing these tools and understanding the different forms of congressional action, citizens can become more informed participants in their democracy.

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