Yes it does, if the senate never brings it to a vote or bringing it to a vote is blocked by a select group that is against it. Lots of bills sit and die and never get voted on. If politicians were required to vote on every bill, there would be a lot of them get voted out of office. A lot of controversial stuff never comes up for a vote because politicians dont want their positions on the subject to be a matter of public record so that it can be used against them when they run for re-election. Barack Obama voted "present" (never yes or no) on pretty much every vote that came up when he was a senator for that very reason.