Congress has specialized, non-partisan staff called legislative counsel. They will take instruction from Congressional personal staff and committee staff and c

Congress has specialized, non-partisan staff called legislative counsel. They will take instruction from Congressional personal staff and committee staff and create drafts of legislation. At times, if the Congressional staff choose, outside counsel (K-Street) can be involved in this process. They can provide "model legislation" at the beginning of the process or suggested revisions. This can be very helpful because the K-street counsel is, at times, more expert on various highly technical aspects of the law. It can also speed up getting the bill into a finished place where it can be introduced. There's nothing particularly nefarious about this process, although well-funded, well-connected interests can get bills drafted sooner. But to be clear, Congressional political staff (who may or may not be lawyers) are in charge of the drafting process. Congress writes the laws.