In the proposals tab you can see all the current options for each category. Look at it as a "Policy" tab but for the whole galaxy except everyone has to vote on the current option for each.
Thing is each faction can only propose one legislation at a time and they're voted on the order they're proposed. If you're on the council you can spend influence to push certain legislation to the floor and (later) delay or veto it.
so when the council starts do all the factions just propose one and take them all up so that's why I can't propose? I'm also trying to figure out how to cancel one, but I can't seem to get myself in the rotation