That tiny stack on top are the laws passed by Congress during the same time period.

Via Senator Mike Lee:

Behold my display of the 2013 Federal Register. It contains over 80,000 pages of new rules, regulations, and notices all written and passed by unelected bureaucrats. The small stack of papers on top of the display are the laws passed by elected members of Congress and signed into law by the president.

HT: Twitchy