Lake County Gazette

Shell bills, also known as vehicle bills, are a tool used by the Illinois General Assembly to create placeholders for yet-to-be-determined legislation. These bills allow lawmakers to introduce legislation after the bill filing deadline has passed.

Each bill introduced must be read by title on three different days in each chamber before it is passed. The first reading introduces the bill, the second reading allows for floor amendments, and a bill is voted on during its third reading.

During each legislative session, leaders in the House of Representatives introduce shell bills before the filing deadline. These bills make minor changes to state law, such as adding or deleting a single word, and are intended to be amended later with substantive legislative language. The state budget and corresponding appropriation bills are typically amended onto shell bills. This year, more than 1,300 shell bills were filed.

To ensure compliance with the single-subject rule stipulated in the Illinois Constitution, many shell bills are introduced each year on various subjects to accommodate unforeseen legislative issues. Shell bills can be identified by "TECH" added to their description or a dollar sign ($) for appropriation bills.

Once filed, shell bills proceed through the legislative and committee process and are parked on second reading on the House Floor until needed. After a floor amendment is adopted, the bill can be moved immediately to third reading for a vote.

The deadline for filing bills typically comes only weeks into the legislative session. If an issue requiring a legislative solution arises after that date, a new bill could be created with approval by the Speaker of the House but would have to go through an entire new process taking up to a week if rules are followed. To bypass this process, shell bills are often used because they have already been assigned to and passed out of committee.

Shell bills can sometimes trick the public; amendments receive less scrutiny than original legislation requiring only short posting notices compared to six days for new bills. Amendments can also be referred directly back to the House Floor instead of going through committee review.

"Shell Bills can--and have been used--to trick," said one observer about how these mechanisms work within government operations.

Additionally,"stealing" legislation over from another bill effectively silences voices who filed opposing witness slips unless those opponents become aware and refile their opposition timely.

Some argue legitimate uses exist for addressing urgent issues post-deadline; however,"using" them transparently remains crucial."House Republicans argue," noted another source,"that important measures should not rush through without" adequate review time especially when potential tax hikes might hide within."

"There are legitimate uses," acknowledged experts about addressing emergent" needs while ensuring transparency."