Tennessee's legislature is indeed cumbersome in its operation, probably by design ("No man's life, liberty, or property is safe while the legislature is in session"). This is probably true of a lot of state legislatures, and the U.S. Congress (thank goodness--imagine if they passed everything they introduced
). Many times, legislators will introduce bills so they can present to their (uninformed?) constituents that they are "doing something." Also, some of the bills not passed were "duplicates" of those that were. Many others die a well-deserved death in committee.
There's an old saying: "Those who like sausage and respect the law shouldn't watch either one being made."