[Congressional Record (Bound Edition), Volume 151 (2005), Part 18]
[Senate]
[Pages 24117-24124]
[From the U.S. Government Publishing Office, www.gpo.gov]




          STATEMENTS ON INTRODUCED BILLS AND JOINT RESOLUTIONS

      By Mr. WYDEN:
  S. 1927. A bill to amend the Internal Revenue Code of 1986 to make 
the Federal income tax system simpler, fairer, and more fiscally 
responsible, and for other purposes; to the Committee on Finance.
  Mr. WYDEN. Mr. President, today I am proposing a Fair Flat Tax Act 
that will finally provide real tax relief to America's hurting middle 
class. It will do so by making the tax system simpler, flatter and 
fairer. And at the same time, it will begin to reduce the deficit that 
is destabilizing our economy, our security and our future.
  This tax reform proposal is simpler because it's easier to understand 
and use. My legislation will include a new, simplified 1040 form that 
is one page, 30 lines, for every individual taxpayer.
  This plan is flatter because it collapses the current system of six 
individual tax brackets down to three--15, 25 and 35 percent--and 
creates a flat corporate rate of 35 percent.
  Ultimately, this plan is fairer because it changes the laws that 
disproportionately favor the most affluent Americans and corporations 
at the expense of the middle class. Instead, it provides a major 
middle-class tax cut--paid for by the elimination of scores of tax 
breaks in the individual and corporate income tax breaks, and by 
repealing the Bush tax cuts that favored the most fortunate few at the 
expense of the many.
  This plan is fairer for American taxpayers because it treats work and 
wealth equally.
  This is a radical statement about tax law: America can do better than 
a two-tier system which forces a policeman to pay a higher effective 
tax rate than an investor who makes his income on capital gains and 
dividends.
  Under the current Federal Tax Code, all income is not created equal 
in this country. Americans who work for wages, in effect, subsidize the 
tax cuts and credits and deferrals of those who make money through 
unearned income--the dividends from investments. It's time to treat all 
taxpayers the same.
  Let me be clear: I am not interested in soaking investors. I am a 
Democrat who believes in markets, and creating wealth. But what our 
country is all about is equality, and our Tax Code should treat 
everyone's income more equally too.
  My legislation, The Fair Flat Tax Act of 2005, adapts the flat tax 
idea to help reduce the deficit instead, through fewer exclusions, 
exemptions, deductions, deferrals, credits and special rates for 
certain businesses and activities, and through the setting of a single, 
flat corporate rate of 35 percent. On the individual side, it ends 
favoritism for itemizers while improving deductions across the board: 
The standard deduction would be tripled for single filers from $5,000 
to $15,000 and raised from $10,000 to $30,000 for married couples. Six 
individual rates are collapsed into three progressive rates of 15 
percent, 25 percent and 35 percent, and income from all sources is 
taxed the same.
  Several deductions used most frequently by individuals, those for 
home mortgage interest and charitable contributions, and the credits 
for children, education and earned income are retained. No one would 
have to calculate their taxes twice: this proposal eliminates the 
individual Alternative Minimum Tax (AMT), which could snare as many as 
21 million American taxpayers in 2006.
  This proposal would eliminate an estimated $20 billion each year in 
special breaks for corporations, and direct the Treasury Secretary to 
identify and report to Congress an additional $10 billion in savings 
from tax expenditures that subsidize inefficiencies in the health care 
system. Eliminating these breaks would sustain current benefits for our 
men and women in uniform, our veterans and the elderly and disabled--as 
well as breaks that promote savings and help families pay for health 
care and education.
  What makes the Fair Flat Tax Act truly unique is that it corrects one 
of the most glaring inequities in the current tax system: regressive 
State and local taxes. Under current law, low and middle income 
taxpayers get hit with a double whammy: compared to wealthy Americans, 
they pay more of their income in State and local taxes. Poor families 
pay more than 11 percent and middle income families pay about 10 
percent of their income in State and local taxes, while wealthier 
taxpayers only pay five percent. And because many low and middle income 
taxpayers don't itemize, they get no credit on their Federal form for 
paying State and local taxes. In fact, two-thirds of the Federal 
deduction for State and local taxes goes to those with incomes above 
$100,000. Under the Fair Flat Tax Act for the first time the Federal 
code would look at the entire picture, at an individual's combined 
Federal, State

[[Page 24118]]

and local tax burden, and give credit to low and middle income 
individuals to correct for regressive State and local taxes.
  Repealing some individual tax credits, deductions and exclusions from 
income--along with some serious changes to the corporate Tax Code--
enables larger standard deductions and broader middle-class tax relief.
  The deductions most important to most Americans remain in place: the 
home mortgage deduction stays, as do child credits and charitable 
contributions, higher education and health savings.
  What all this means for American taxpayers is--the vast majority of 
taxpayers will see a cut, particularly the middle class. Congressional 
Research Service experts tell us that middle class families and 
families with wage and salary incomes up to $150,000 will see tax 
relief.
  On the corporate side--this plan does something that may not be 
popular, but it's right.
  Each of us, including America's corporations, need to pay our fair 
share. Corporations that have used tax loopholes to avoid paying their 
fair share of taxes are going to see those loopholes close and they're 
going to contribute.
  This legislation makes concrete progress toward deficit reduction. 
There's a long way to go to stop the hemorrhaging in the Federal 
budget, but this legislation makes a real start by whittling the 
deficit down approximately $100 billion over five years.
  Some may wonder if what I am proposing today is a response to the 
President's Tax Reform Advisory Panel. To date, the Panel hasn't 
officially released its recommendations. I can't respond to something 
that hasn't been introduced yet. But I am troubled by the fact that the 
recommendations trickling out from the Panel would continue to twist 
the Tax Code away from equal treatment of all income, widening the 
chasm between people who get wages and people who collect dividends.
  I am introducing The Fair Flat Tax Act of 2005 today to provide 
Americans a plan based on common-sense principles that can make the Tax 
Code work better.
  Making the Tax Code simpler and flatter is going to make it fairer. 
My legislation is going to provide real relief to the middle class. It 
will treat work and wealth equally. It will make a start at reducing 
the deficit. I am ready to get to work with my colleagues and move it 
forward.
  I ask unanimous consent that the text of the bill be printed in the 
Record.
  There being no objection, the bill was ordered to be printed in the 
Record, as follows:

                                S. 1927

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE; AMENDMENT OF 1986 CODE; TABLE OF 
                   CONTENTS.

       (a) Short Title.--This Act may be cited as the ``Fair Flat 
     Tax Act of 2005''.
       (b) Amendment of 1986 Code.--Except as otherwise expressly 
     provided, whenever in this Act an amendment or repeal is 
     expressed in terms of an amendment to, or repeal of, a 
     section or other provision, the reference shall be considered 
     to be made to a section or other provision of the Internal 
     Revenue Code of 1986.
       (c) Table of Contents.--The table of contents for this Act 
     is as follows:

Sec. 1. Short title; amendment of 1986 Code; table of contents.
Sec. 2. Purpose.

                 TITLE I--INDIVIDUAL INCOME TAX REFORMS

Sec. 101. 3 progressive individual income tax rates for all forms of 
              income.
Sec. 102. Increase in basic standard deduction.
Sec. 103. Refundable credit for State and local income, sales, and real 
              and personal property taxes.
Sec. 104. Earned income child credit and earned income credit for 
              childless taxpayers.
Sec. 105. Repeal of individual alternative minimum tax.
Sec. 106. Termination of various exclusions, exemptions, deductions, 
              and credits.

          TITLE II--CORPORATE AND BUSINESS INCOME TAX REFORMS

Sec. 201. Corporate flat tax.
Sec. 202. Treatment of travel on corporate aircraft.
Sec. 203. Termination of various preferential treatments.
Sec. 204. Elimination of tax expenditures that subsidize inefficiencies 
              in the health care system.
Sec. 205. Pass-through business entity transparency.

         TITLE III--TECHNICAL AND CONFORMING AMENDMENTS; SUNSET

Sec. 301. Technical and conforming amendments.
Sec. 302. Sunset.

     SEC. 2. PURPOSE.

       The purpose of this Act is to amend the Internal Revenue 
     Code of 1986--
       (1) to make the Federal individual income tax system 
     simpler, fairer, and more transparent by--
       (A) recognizing the overall Federal, State, and local tax 
     burden on individual Americans, especially the regressive 
     nature of State and local taxes, and providing a Federal 
     income tax credit for State and local income, sales, and 
     property taxes,
       (B) providing for an earned income tax credit for childless 
     taxpayers and a new earned income child credit,
       (C) repealing the individual alternative minimum tax,
       (D) increasing the basic standard deduction and maintaining 
     itemized deductions for principal residence mortgage interest 
     and charitable contributions,
       (E) reducing the number of exclusions, exemptions, 
     deductions, and credits, and
       (F) treating all income equally,
       (2) to make the Federal corporate income tax rate a flat 35 
     percent and eliminate special tax preferences that favor 
     particular types of businesses or activities, and
       (3) to partially offset the Federal budget deficit through 
     the increased revenues resulting from these reforms.

                 TITLE I--INDIVIDUAL INCOME TAX REFORMS

     SEC. 101. 3 PROGRESSIVE INDIVIDUAL INCOME TAX RATES FOR ALL 
                   FORMS OF INCOME.

       (a) Married Individuals Filing Joint Returns and Surviving 
     Spouses.--The table contained in section 1(a) is amended to 
     read as follows:
The tax is:e income is:
15% of taxable income. ................................................
$3,750, plus 25% of the excess over $25,000 ...........................
$27,500, plus 35% of the excess over $120,000''........................

       (b) Heads of Households.--The table contained in section 
     1(b) is amended to read as follows:
The tax is:e income is:
15% of taxable income. ................................................
$2,400, plus 25% of the excess over $16,000 ...........................
$24,650, plus 35% of the excess over $105,000''........................

       (c) Unmarried Individuals (Other Than Surviving Spouses and 
     Heads of Households.--The table contained in section 1(c) is 
     amended to read as follows:
The tax is:e income is:
15% of taxable income. ................................................
$2,250, plus 25% of the excess over $15,000 ...........................
$16,000, plus 35% of the excess over $70,000''.........................

       (d) Married Individuals Filing Separate Returns.--The table 
     contained in section 1(d) is amended to read as follows:
The tax is:e income is:
15% of taxable income. ................................................
$1,875, plus 25% of the excess over $12,500 ...........................
$13,750, plus 35% of the excess over $60,000''.........................

       (e) Conforming Amendments to Inflation Adjustment.--Section 
     1(f) is amended--
       (1) by striking ``1993''in paragraph (1) and inserting 
     ``2006'',
       (2) by striking ``except as provided in paragraph (8)'' in 
     paragraph (2)(A),
       (3) by striking ``1992'' in paragraph (3)(B) and inserting 
     ``2005'',
       (4) by striking paragraphs (7) and (8), and
       (5) by striking ``Phaseout of Marriage Penalty in 15-
     Percent Bracket;'' in the heading thereof.
       (f) Repeal of Rate Differential for Capital Gains and 
     Dividends.--
       (1) Repeal of 2003 rate reduction.--Section 303 of the Jobs 
     and Growth Tax Relief Reconciliation Act of 2003 is amended 
     by striking ``December 3, 2008'' and inserting ``December 31, 
     2005''.
       (2) Termination of pre-2003 capital gain rate 
     differential.--Section 1(h) is amended (after the application 
     of paragraph (1)) by adding at the end the following new 
     paragraph:
       ``(13) Termination.--This section shall not apply to 
     taxable years beginning after December 31, 2005.''.
       (g) Additional Conforming Amendments.--
       (1) Section 1 is amended by striking subsection (i).
       (2) The Internal Revenue Code of 1986 is amended by 
     striking ``calendar year 1992'' each place it appears and 
     inserting ``calendar year 2005''.
       (3) Section 1445(e)(1) (after the application of subsection 
     (g)(1)) is amended by striking ``(or, to the extent provided 
     in regulations, 20 percent)''.
       (h) Effective Date.--The amendments made by this section 
     shall apply to taxable years beginning after December 31, 
     2005.

[[Page 24119]]



     SEC. 102. INCREASE IN BASIC STANDARD DEDUCTION.

       (a) In General.--Paragraph (2) of section 63(c) (defining 
     standard deduction) is amended to read as follows:
       ``(2) Basic standard deduction.--For purposes of paragraph 
     (1), the basic standard deduction is--
       ``(A) 200 percent of the dollar amount in effect under 
     subparagraph (C) for the taxable year in the case of--
       ``(i) a joint return, or
       ``(ii) a surviving spouse (as defined in section 2(a)),
       ``(B) $26,250 in the case of a head of household (as 
     defined in section 2(b)), or
       ``(C) $15,000 in any other case.''.
       (b) Conforming Amendment to Inflation Adjustment.--Section 
     63(c)(4)(B)(i) is amended by striking ``(2)(B), (2)(C), or''.
       (c) Effective Date.--The amendments made by this section 
     shall apply to taxable years beginning after December 31, 
     2005.

     SEC. 103. REFUNDABLE CREDIT FOR STATE AND LOCAL INCOME, 
                   SALES, AND REAL AND PERSONAL PROPERTY TAXES.

       (a) General Rule.--Subpart C of part IV of subchapter A of 
     chapter 1 (relating to refundable credits) is amended by 
     redesignating section 36 as section 37 and by inserting after 
     section 35 the following new section:

     ``SEC. 36. CREDIT FOR STATE AND LOCAL INCOME, SALES, AND REAL 
                   AND PERSONAL PROPERTY TAXES.

       ``(a) Allowance of Credit.--In the case of an individual, 
     there shall be allowed as a credit against the tax imposed by 
     this subtitle for the taxable year an amount equal to 10 
     percent of the qualified State and local taxes paid by the 
     taxpayer for such year.
       ``(b) Qualified State and Local Taxes.--For purposes of 
     this section, the term `qualified State and local taxes' 
     means--
       ``(1) State and local income taxes,
       ``(2) State and local general sales taxes,
       ``(3) State and local real property taxes, and
       ``(4) State and local personal property taxes.
       ``(c) Definitions and Special Rules.--For purposes of this 
     section--
       ``(1) State or local taxes.--A State or local tax includes 
     only a tax imposed by a State, a possession of the United 
     States, or a political subdivision of any of the foregoing, 
     or by the District of Columbia.
       ``(2) General sales taxes.--
       ``(A) In general.--The term `general sales tax' means a tax 
     imposed at one rate with respect to the sale at retail of a 
     broad range of classes of items.
       ``(B) Application of rules.--Rules similar to the rules 
     under subparagraphs (C), (D), (E), (F), (G), and (H) of 
     section 164(b)(5) shall apply.
       ``(3) Personal property taxes.--The term `personal property 
     tax' means an ad valorem tax which is imposed on an annual 
     basis in respect of personal property.
       ``(4) Application of rules to property taxes.--Rules 
     similar to the rules of subsections (c) and (d) of section 
     164 shall apply.
       ``(5) No credit for married individuals filing separate 
     returns.--If the taxpayer is a married individual (within the 
     meaning of section 7703), this section shall apply only if 
     the taxpayer and the taxpayer's spouse file a joint return 
     for the taxable year.
       ``(6) Denial of credit to dependents.--No credit shall be 
     allowed under this section to any individual with respect to 
     whom a deduction under section 151 is allowable to another 
     taxpayer for a taxable year beginning in the calendar year in 
     which such individual's taxable year begins.
       ``(7) Denial of double benefit.--Any amount taken into 
     account in determining the credit allowable under this 
     section may not be taken into account in determining any 
     credit or deduction under any other provision of this 
     chapter.''.
       (b) Technical Amendments.--
       (1) Paragraph (2) of section 1324(b) of title 31, United 
     States Code, is amended by inserting ``or from section 36 of 
     such Code'' before the period at the end.
       (2) The table of sections for subpart C of part IV of 
     subchapter A of chapter 1 is amended by striking the item 
     relating to section 36 and inserting the following:

``Sec. 36. Credit for state and local income, sales, and real and 
              personal property taxes.
``Sec. 37. Overpayments of tax.''.

       (c) Report Regarding Use of Credit by Renters.--Not later 
     than 180 days after the date of the enactment of this Act, 
     the Secretary of the Treasury shall report to the Committee 
     on Finance of the Senate and the Committee on Ways and Means 
     of the House of Representatives recommendations regarding the 
     treatment of a portion of rental payments in a manner similar 
     to real property taxes under section 36 of the Internal 
     Revenue Code of 1986 (as added by this section).
       (d) Effective Date.--The amendments made by this section 
     shall apply to taxable years beginning after December 31, 
     2005.

     SEC. 104. EARNED INCOME CHILD CREDIT AND EARNED INCOME CREDIT 
                   FOR CHILDLESS TAXPAYERS.

       (a) In General.--Subsection (a) of section 32 (relating to 
     earned income) is amended to read as follows:
       ``(a) Allowance of Earned Income Child Credit and Earned 
     Income Credit.--
       ``(1) In general.--There shall be allowed as a credit 
     against the tax imposed by this subtitle for the taxable 
     year--
       ``(A) in the case of any eligible individual with 1 or more 
     qualifying children, an amount equal to the earned income 
     child credit amount, and
       ``(B) in the case of any eligible individual with no 
     qualifying children, an amount equal to the earned income 
     credit amount.
       ``(2) Earned income child credit amount.--For purposes of 
     this section, the earned income child credit amount is equal 
     to the sum of--
       ``(A) the credit percentage of so much of the taxpayer's 
     earned income for the taxable year as does not exceed the 
     earned income limit amount, plus
       ``(B) the supplemental child credit amount determined under 
     subsection (n) for such taxable year.
       ``(3) Earned income credit amount.--For purposes of this 
     section, the earned income credit amount is equal to the 
     credit percentage of so much of the taxpayer's earned income 
     for the taxable year as does not exceed the earned income 
     limit amount.
       ``(4) Limitation.--The amount of the credit allowable to a 
     taxpayer under paragraph (2)(A) or (3) for any taxable year 
     shall not exceed the excess (if any) of--
       ``(A) the credit percentage of the earned income amount, 
     over
       ``(B) the phaseout percentage of so much of the adjusted 
     gross income (or, if greater, the earned income) of the 
     taxpayer for the taxable year as exceeds the phaseout 
     amount.''.
       (b) Supplemental Child Credit Amount.--Section 32 is 
     amended by adding at the end the following new subsection:
       ``(n) Supplemental Child Credit Amount.--
       ``(1) In general.--For purposes of subsection (a)(2)(B), 
     the supplemental child credit amount for any taxable year is 
     equal to the lesser of--
       ``(A) the credit which would be allowed under section 24 
     for such taxable year without regard to the limitation under 
     section 24(b)(3) with respect to any qualifying child as 
     defined under subsection (c)(3), or
       ``(B) the amount by which the aggregate amount of credits 
     allowed by subpart A for such taxable year would increase if 
     the limitation imposed by section 24(b)(3) were increased by 
     the excess (if any) of--
       ``(i) 15 percent of so much of the taxpayer's earned income 
     which is taken into account in computing taxable income for 
     the taxable year as exceeds $10,000, or
       ``(ii) in the case of a taxpayer with 3 or more qualifying 
     children (as so defined), the excess (if any) of--

       ``(I) the taxpayer's social security taxes for the taxable 
     year, over
       ``(II) the credit allowed under this section for the 
     taxable year.

     The amount of the credit allowed under this subsection shall 
     not be treated as a credit allowed under subpart A and shall 
     reduce the amount of credit otherwise allowable under section 
     24(a) without regard to section 24(b)(3).
       ``(2) Social security taxes.--For purposes of paragraph 
     (1)--
       ``(A) In general.--The term `social security taxes' means, 
     with respect to any taxpayer for any taxable year--
       ``(i) the amount of the taxes imposed by section 3101 and 
     3201(a) on amounts received by the taxpayer during the 
     calendar year in which the taxable year begins,
       ``(ii) 50 percent of the taxes imposed by section 1401 on 
     the self-employment income of the taxpayer for the taxable 
     year, and
       ``(iii) 50 percent of the taxes imposed by section 
     3211(a)(1) on amounts received by the taxpayer during the 
     calendar year in which the taxable year begins.
       ``(B) Coordination with special refund of social security 
     taxes.--The term `social security taxes' shall not include 
     any taxes to the extent the taxpayer is entitled to a special 
     refund of such taxes under section 6413(c).
       ``(C) Special rule.--Any amounts paid pursuant to an 
     agreement under section 3121(l) (relating to agreements 
     entered into by American employers with respect to foreign 
     affiliates) which are equivalent to the taxes referred to in 
     subparagraph (A)(i) shall be treated as taxes referred to in 
     such paragraph.
       ``(3) Inflation adjustment.--In the case of any taxable 
     year beginning in a calendar year after 2005, the $10,000 
     amount contained in paragraph (1)(B) shall be increased by an 
     amount equal to--
       ``(A) such dollar amount, multiplied by
       ``(B) the cost-of-living adjustment determined under 
     section 1(f)(3) for the calendar year in which the taxable 
     year begins, determined by substituting `calendar year 2000' 
     for `calendar year 1992' in subparagraph (B) thereof.

     Any increase determined under the preceding sentence shall be 
     rounded to the nearest multiple of $50.''.
       (c) Conforming Amendment.--Section 24(d) is amended by 
     adding at the end the following new paragraph:
       ``(4) Termination.--This subsection shall not apply with 
     respect to any taxable year beginning after December 31, 
     2005.''.
       (d) Certain Treatment of Earned Income Made Permanent.--
     Clause (vi) of section 32(c)(2)(B) is amended to read as 
     follows:

[[Page 24120]]

       ``(vi) a taxpayer may elect to treat amounts excluded from 
     gross income by reason of section 112 as earned income.''.
       (e) Repeal of Disqualified Investment Income Test.--
     Subsection (i) of section 32 is repealed.
       (f) Effective Date.--The amendments made by this section 
     shall apply to taxable years beginning after December 31, 
     2005.

     SEC. 105. REPEAL OF INDIVIDUAL ALTERNATIVE MINIMUM TAX.

       (a) In General.--Section 55(a) (relating to alternative 
     minimum tax imposed) is amended by adding at the end the 
     following new flush sentence:
     ``For purposes of this title, the tentative minimum tax on 
     any taxpayer other than a corporation for any taxable year 
     beginning after December 31, 2005, shall be zero.''.
       (b) Modification of Limitation on Use of Credit for Prior 
     Year Minimum Tax Liability.--Subsection (c) of section 53 
     (relating to credit for prior year minimum tax liability) is 
     amended to read as follows:
       ``(c) Limitation.--
       ``(1) In general.--Except as provided in paragraph (2), the 
     credit allowable under subsection (a) for any taxable year 
     shall not exceed the excess (if any) of --
       ``(A) the regular tax liability of the taxpayer for such 
     taxable year reduced by the sum of the credits allowable 
     under subparts A, B, D, E, and F of this part, over
       ``(B) the tentative minimum tax for the taxable year.
       ``(2) Taxable years beginning after 2005.--In the case of 
     any taxable year beginning after 2005, the credit allowable 
     under subsection (a) to a taxpayer other than a corporation 
     for any taxable year shall not exceed 90 percent of the 
     regular tax liability of the taxpayer for such taxable year 
     reduced by the sum of the credits allowable under subparts A, 
     B, D, E, and F of this part.''.
       (c) Effective Date.--The amendments made by this section 
     shall apply to taxable years beginning after December 31, 
     2005.

     SEC. 106. TERMINATION OF VARIOUS EXCLUSIONS, EXEMPTIONS, 
                   DEDUCTIONS, AND CREDITS.

       (a) In General.--Subchapter C of chapter 90 (relating to 
     provisions affecting more than one subtitle) is amended by 
     adding at the end the following new section:

     ``SEC. 7875. TERMINATION OF CERTAIN PROVISIONS.

       ``The following provisions shall not apply to taxable years 
     beginning after December 31, 2005:
       ``(1) Section 44 (relating to credit for expenditures to 
     provide access to disabled individuals).
       ``(2) Section 62(a)(2)(D) (relating to deduction for 
     certain expenses of elementary and secondary school 
     teachers).
       ``(3) Section 67 (relating to 2-percent floor on 
     miscellaneous itemized deductions).
       ``(4) Section 74(c) (relating to exclusion of certain 
     employee achievement awards).
       ``(5) Section 79 (relating to exclusion of group-term life 
     insurance purchased for employees).
       ``(6) Section 104(a)(1) (relating to exclusion of workmen's 
     compensation).
       ``(7) Section 104(a)(2) (relating to exclusion of damages 
     for physical injuries and sickness).
       ``(8) Section 107 (relating to exclusion of rental value of 
     parsonages).
       ``(9) Section 119 (relating to exclusion of meals or 
     lodging furnished for the convenience of the employer).
       ``(10) Section 125 (relating to exclusion of cafeteria plan 
     benefits).
       ``(11) Section 132 (relating to certain fringe benefits), 
     except with respect to subsection (a)(5) thereof (relating to 
     exclusion of qualified transportation fringe).
       ``(12) Section 163(h)(4)(A)(i)(II) (relating to definition 
     of qualified residence).
       ``(13) Section 165(d) (relating to deduction for wagering 
     losses).
       ``(14) Section 217 (relating to deduction for moving 
     expenses).
       ``(15) Section 454 (relating to deferral of tax on 
     obligations issued at discount).
       ``(16) Section 501(c)(9) (relating to tax-exempt status of 
     voluntary employees' beneficiary associations).
       ``(17) Section 911 (relating to exclusion of earned income 
     of citizens or residents of the United States living abroad).
       ``(18) Section 912 (relating to exemption for certain 
     allowances).''.
       (b) Conforming Amendment.--The table of sections for 
     subchapter C of chapter 90 is amended by adding at the end 
     the following new item:

``Sec. 7875. Termination of certain provisions.''.

          TITLE II--CORPORATE AND BUSINESS INCOME TAX REFORMS

     SEC. 201. CORPORATE FLAT TAX.

       (a) In General.--Subsection (b) of section 11 (relating to 
     tax imposed) is amended to read as follows:
       ``(b) Amount of Tax.--The amount of tax imposed by 
     subsection (a) shall be equal to 35 percent of the taxable 
     income.''.
       (b) Conforming Amendments.--
       (1) Section 280C(c)(3)(B)(ii)(II) is amended by striking 
     ``maximum rate of tax under section 11(b)(1)'' and inserting 
     ``rate of tax under section 11(b)''.
       (2) Sections 860E(e)(2)(B), 860E(e)(6)(A)(ii), 
     860K(d)(2)(A)(ii), 860K(e)(1)(B)(ii), 1446(b)(2)(B), and 
     7874(e)(1)(B) are each amended by striking ``highest rate of 
     tax specified in section 11(b)(1)'' and inserting ``rate of 
     tax specified in section 11(b)''.
       (3) Section 904(b)(3)(D)(ii) is amended by striking 
     ``(determined without regard to the last sentence of section 
     11(b)(1))''.
       (4) Section 962 is amended by striking subsection (c) and 
     by redesignating subsection (d) as subsection (c).
       (5) Section 1201(a) is amended by striking ``(determined 
     without regard to the last 2 sentences of section 
     11(b)(1))''.
       (6) Section 1561(a) is amended--
       (A) by striking paragraph (1) and by redesignating 
     paragraphs (2), (3), and (4) as paragraphs (1), (2), and (3), 
     respectively,
       (B) by striking ``The amounts specified in paragraph (1), 
     the'' and inserting ``The'',
       (C) by striking ``paragraph (2)'' and inserting ``paragraph 
     (1)'',
       (D) by striking ``paragraph (3)'' both places it appears 
     and inserting ``paragraph (2)'',
       (E) by striking ``paragraph (4)'' and inserting ``paragraph 
     (3)'', and
       (F) by striking the fourth sentence.
       (7) Subsection (b) of section 1561 is amended to read as 
     follows:
       ``(b) Certain Short Taxable Years.--If a corporation has a 
     short taxable year which does not include a December 31 and 
     is a component member of a controlled group of corporations 
     with respect to such taxable year, then for purposes of this 
     subtitle, the amount to be used in computing the accumulated 
     earnings credit under section 535(c)(2) and (3) of such 
     corporation for such taxable year shall be the amount 
     specified in subsection (a)(1) divided by the number of 
     corporations which are component members of such group on the 
     last day of such taxable year. For purposes of the preceding 
     sentence, section 1563(b) shall be applied as if such last 
     day were substituted for December 31.''.
       (c) Effective Date.--The amendments made by this section 
     shall apply to taxable years beginning after December 31, 
     2005.

     SEC. 202. TREATMENT OF TRAVEL ON CORPORATE AIRCRAFT.

       (a) In General.--Section 162 (relating to trade or business 
     expenses) is amended by redesignating subsection (q) as 
     subsection (r) and b inserting after subsection (p) the 
     following new subsection:
       ``(q) Treatment of Travel on Corporate Aircraft.--The rate 
     at which an amount allowable as a deduction under this 
     chapter for the use of an aircraft owned by the taxpayer is 
     determined shall not exceed the rate at which an amount paid 
     or included in income by an employee of such taxpayer for the 
     personal use of such aircraft is determined.''.
       (b) Effective Date.--The amendments made by this section 
     shall apply to taxable years beginning after December 31, 
     2005.

     SEC. 203. TERMINATION OF VARIOUS PREFERENTIAL TREATMENTS.

       (a) In General.--Section 7875, as added by section 106, is 
     amended--
       (1) by inserting ``(or transactions in the case of sections 
     referred to in paragraphs (21), (22), (23), (24), and (27))'' 
     after ``taxable years beginning'', and
       (2) by adding at the end the following new paragraphs:
       ``(19) Section 43 (relating to enhanced oil recovery 
     credit).
       ``(20) Section 263(c) (relating to intangible drilling and 
     development costs in the case of oil and gas wells and 
     geothermal wells).
       ``(21) Section 382(l)(5) (relating to exception from net 
     operating loss limitations for corporations in bankruptcy 
     proceeding).
       ``(22) Section 451(i) (relating to special rules for sales 
     or dispositions to implement Federal Energy Regulatory 
     Commission or State electric restructuring policy).
       ``(23) Section 453A (relating to special rules for 
     nondealers), but only with respect to the dollar limitation 
     under subsection (b)(1) thereof and subsection (b)(3) thereof 
     (relating to exception for personal use and farm property).
       ``(24) Section 460(e)(1) (relating to special rules for 
     long-term home construction contracts or other short-term 
     construction contracts).
       ``(25) Section 613A (relating to percentage depletion in 
     case of oil and gas wells).
       ``(26) Section 616 (relating to development costs).
       ``(27) Sections 861(a)(6), 862(a)(6), 863(b)(2), 863(b)(3), 
     and 865(b) (relating to inventory property sales source rule 
     exception).''.
       (b) Full Tax Rate on Nuclear Decommissioning Reserve 
     Fund.--Subparagraph (B) of section 468A(e)(2) is amended to 
     read as follows:
       ``(B) Rate of tax.--For purposes of subparagraph (A), the 
     rate set forth in this subparagraph is 35 percent.''.
       (c) Deferral of Active Income of Controlled Foreign 
     Corporations.--Section 952 (relating to subpart F income 
     defined) is amended by adding at the end the following new 
     subsection:
       ``(e) Special Application of Subpart.--
       ``(1) In general.--For taxable years beginning after 
     December 31, 2005, notwithstanding any other provision of 
     this subpart, the term `subpart F income' means, in the case 
     of any controlled foreign corporation, the income of such 
     corporation derived from any foreign country.

[[Page 24121]]

       ``(2) Applicable rules.--Rules similar to the rules under 
     the last sentence of subsection (a) and subsection (d) shall 
     apply to this subsection.''.
       (d) Deferral of Active Financing Income.--Section 
     953(e)(10) is amended--
       (1) by striking ``2006'' and inserting ``2005'', and
       (2) by striking ``2007'' and inserting ``2006''.
       (e) Depreciation on Equipment in Excess of Alternative 
     Depreciation System.--Section 168(g)(1) (relating to 
     alternative depreciation system) is amended by striking 
     ``and'' at the end of subparagraph (D), by adding ``and'' at 
     the end of subparagraph (E), and by inserting after 
     subparagraph (E) the following new subparagraph:
       ``(F) notwithstanding subsection (a), any tangible property 
     placed in service after December 31, 2005,''.
       (f) Effective Date.--The amendments made by subsections 
     (b), (c), and (d) shall apply to taxable years beginning 
     after December 31, 2005.

     SEC. 204. ELIMINATION OF TAX EXPENDITURES THAT SUBSIDIZE 
                   INEFFICIENCIES IN THE HEALTH CARE SYSTEM.

       Not later than 180 days after the date of the enactment of 
     this Act, the Secretary of the Treasury shall report to the 
     Committee on Finance of the Senate and the Committee on Ways 
     and Means of the House of Representatives recommendations 
     regarding the elimination of Federal tax incentives which 
     subsidize inefficiencies in the health care system and if 
     eliminated would result in Federal budget savings of not less 
     than $10,000,000,000 annually.

     SEC. 205. PASS-THROUGH BUSINESS ENTITY TRANSPARENCY.

       Not later than 90 days after the date of the enactment of 
     this Act, the Secretary of the Treasury shall report to the 
     Committee on Finance of the Senate and the Committee on Ways 
     and Means of the House of Representatives regarding the 
     implementation of additional reporting requirements with 
     respect to any pass-through entity with the goal of the 
     reduction of tax avoidance through the use of such entities, 
     In addition, the Secretary shall develop procedures to share 
     such report data with State revenue agencies under the 
     disclosure requirements of section 6103(d) of the Internal 
     Revenue Code of 1986.

         TITLE III--TECHNICAL AND CONFORMING AMENDMENTS; SUNSET

     SEC. 301. TECHNICAL AND CONFORMING AMENDMENTS.

       The Secretary of the Treasury or the Secretary's delegate 
     shall not later than 90 days after the date of the enactment 
     of this Act, submit to the Committee on Ways and Means of the 
     House of Representatives and the Committee on Finance of the 
     Senate a draft of any technical and conforming changes in the 
     Internal Revenue Code of 1986 which are necessary to reflect 
     throughout such Code the purposes of the provisions of, and 
     amendments made by, this Act.

     SEC. 302. SUNSET.

       (a) In General.--All provisions of, and amendments made by, 
     this Act shall not apply to taxable years beginning after 
     December 31, 2010.
       (b) Application of Code.--The Internal Revenue Code of 1986 
     shall be applied and administered to taxable years described 
     in subsection (a) as if the provisions of, and amendments 
     made by, this Act had never been enacted.
                                 ______
                                 
      By Mr. REID (for himself and Mr. Cochran):
  S. 1930. A bill to expand the research, prevention, and awareness 
activities of the National Institute of Diabetes and Digestive and 
Kidney Diseases and the Centers for Disease Control and Prevention with 
respect to inflammatory bowel disease; to the Committee on Health, 
Education, Labor, and Pensions.
  Mr. REID. Mr. President, I rise today to introduce legislation 
focused on a devastating condition known as inflammatory bowel disease 
(IBD). I am pleased that Senator Cochran has once again joined me in 
the fight against this painful and debilitating disease.
  Crohn's disease and ulcerative colitis, collectively known as 
inflammatory bowel disease, are chronic disorders of the 
gastrointestinal tract which afflict approximately 1.4 million 
Americans, 30 percent whom are diagnosed in their childhood years. IBD 
can cause severe abdominal pain, fever, and intestinal bleeding. 
Complications related to the disease include; arthritis, osteoporosis, 
anemia, liver disease, growth and developmental challenges, and 
colorectal cancer. Inflammatory bowel disease represents a major cause 
of morbidity from digestive illness and has a devastating impact on 
patients and families.
  In the 108th Congress I was proud to sponsor bipartisan legislation 
focused on IBD that attracted 36 co-sponsors. Several important 
provisions of that bill were incorporated into legislation known as the 
``Research Review Act'' which was signed into law by the President last 
November. Specifically, the ``Research Review Act'' called on the 
Government Accountability Office and the Centers for Disease Control 
and Prevention to submit reports to Congress on three issues of 
critical importance to the IBD community, 1. Social Security 
Disability, 2. Medicare and Medicaid coverage, and 3. the epidemiology 
of the disease in the United States.
  The legislation I am introducing today builds upon the progress made 
last year by calling for an increased Federal investment in biomedical 
research on IBD. The hope for a better quality of life patients and 
families depends on basic and clinical research sponsored by the 
National Institute of Diabetes and Digestive and Kidney Diseases at the 
National Institutes of Health (NIDDK). The ``Inflammatory Bowel Disease 
Research Act'' calls for an expansion of NIDDK's research portfolio on 
Crohn's disease and ulcerative colitis in order to capitalize on 
several exciting discoveries that have broadened our understanding of 
IBD in recent years. By increasing our investment in this area, we will 
maximize the possibility that we will be able to offer hope to millions 
of Americans who suffer from this debilitating disease. At the same 
time, progress in this area could also mean we would save millions of 
dollars in net health care expenditures through reduced 
hospitalizations and surgeries.
  In addition to biomedical research, this legislation also calls on 
the Centers for Disease Control and Prevention to develop a ``National 
Inflammatory Bowel Disease Action Plan.'' This plan will provide a 
comprehensive approach to addressing the burden of IBD in the United 
States, including strategies for raising awareness of the disease among 
the general public and health care community, expanding epidemiological 
research focused on the prevalence of IBD, and preventing the 
progression of the disease and its complications.
  The Crohn's and Colitis Foundation of America, an organization that 
has been a leader in the battle against IBD, has strongly endorsed this 
legislation. In addition to CCFA, the following organizations have 
endorsed this bill: The North American Society for Pediatric 
Gastroenterology, Hepatology and Nutrition, the American 
Gastroenterological Association, the American Society for 
Gastrointestinal Endoscopy, the Digestive Disease National Coalition, 
the Society of Gastroenterology Nurses and Associates, and the 
Pennsylvania Society of Gastroenterology.
  I urge all Senators to join Senator Cochran and me in this important 
cause by co-sponsoring the ``Inflammatory Bowel Disease Research Act.''
  I ask unanimous consent that the text of the bill be printed in the 
Record.
  There being no objection, the bill was ordered to be printed in the 
Record, as follows:

                                S. 1930

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``Inflammatory Bowel Disease 
     Research Act''.

     SEC. 2. FINDINGS.

       The Congress finds as follows:
       (1) Crohn's disease and ulcerative colitis are serious 
     inflammatory diseases of the gastrointestinal tract.
       (2) Crohn's disease may occur in any section of the 
     gastrointestinal tract but is predominately found in the 
     lower part of the small intestine and the large intestine. 
     Ulcerative colitis is characterized by inflammation and 
     ulceration of the innermost lining of the colon. Complete 
     removal of the colon in patients with ulcerative colitis can 
     potentially alleviate and cure symptoms.
       (3) Because Crohn's disease and ulcerative colitis behave 
     similarly, they are collectively known as inflammatory bowel 
     disease. Both diseases present a variety of symptoms, 
     including severe diarrhea; abdominal pain with cramps; fever; 
     and rectal bleeding. There is no known cause of inflammatory 
     bowel disease, or medical cure.
       (4) It is estimated that up to 1,400,000 people in the 
     United States suffer from inflammatory bowel disease, 30 
     percent of whom are diagnosed during their childhood years.
       (5) Children with inflammatory bowel disease miss school 
     activities because of bloody

[[Page 24122]]

     diarrhea and abdominal pain, and many adults who had onset of 
     inflammatory bowel disease as children had delayed puberty 
     and impaired growth and have never reached their full genetic 
     growth potential.
       (6) Inflammatory bowel disease patients are at high risk 
     for developing colorectal cancer.
       (7) The total annual medical costs for inflammatory bowel 
     disease patients is estimated at more than $2,000,000,000.

     SEC. 3. NATIONAL INSTITUTE OF DIABETES AND DIGESTIVE AND 
                   KIDNEY DISEASES; INFLAMMATORY BOWEL DISEASE 
                   RESEARCH EXPANSION.

       (a) In General.--The Director of the National Institute of 
     Diabetes and Digestive and Kidney Diseases shall expand, 
     intensify, and coordinate the activities of the Institute 
     with respect to research on inflammatory bowel disease, with 
     particular emphasis on the following areas:
       (1) Genetic research on susceptibility for inflammatory 
     bowel disease, including the interaction of genetic and 
     environmental factors in the development of the disease.
       (2) Research targeted to increase knowledge about the 
     causes and complications of inflammatory bowel disease in 
     children.
       (3) Animal model research on inflammatory bowel disease, 
     including genetics in animals.
       (4) Clinical inflammatory bowel disease research, including 
     clinical studies and treatment trials.
       (5) Expansion of the Institute's Inflammatory Bowel Disease 
     Centers program with a focus on pediatric research.
       (6) Other research initiatives identified by the scientific 
     document entitled ``Challenges in Inflammatory Bowel 
     Disease'' and the research agenda for pediatric 
     gastroenterology, hepatology and nutrition entitled ``Chronic 
     Inflammatory Bowel Disease''.
       (b) Authorization of Appropriations.--
       (1) In general.--For the purpose of carrying out subsection 
     (a), there are authorized to be appropriated $75,000,000 for 
     fiscal year 2006, $85,000,000 for fiscal year 2007, and 
     $100,000,000 for fiscal year 2008.
       (2) Reservation.--Of the amounts authorized to be 
     appropriated under paragraph (1), not more than 20 percent 
     shall be reserved for the training of qualified health 
     professionals in biomedical research focused on inflammatory 
     bowel disease, including pediatric investigators.

     SEC. 4. CENTERS FOR DISEASE CONTROL AND PREVENTION; NATIONAL 
                   INFLAMMATORY BOWEL DISEASE ACTION PLAN.

       (a) In General.--
       (1) Preparation of plan.--The Director of the Centers for 
     Disease Control and Prevention, in consultation with the 
     inflammatory bowel disease community, shall prepare a 
     comprehensive plan to address the burden of inflammatory 
     bowel disease in both adult and pediatric populations (which 
     plan shall be designated by the Director as the ``National 
     Inflammatory Bowel Disease Action Plan'').
       (2) Report to congress.-- Not later than 12 months after 
     the date of the enactment of this Act, the Director of the 
     Centers for Disease Control and Prevention shall submit the 
     Plan referred to in paragraph (1) to the Committee on Energy 
     and Commerce and the Committee on Appropriations in the House 
     of Representatives and to the Committee on Health, Education, 
     Labor and Pensions and the Committee on Appropriations in the 
     Senate.
       (b) Content.--
       (1) In general.--The National Inflammatory Bowel Disease 
     Action Plan shall address strategies for determining the true 
     prevalence of inflammatory bowel disease in the United 
     States, and the unique demographic characteristics of the 
     patient community through the expansion of appropriate 
     epidemiological activities.
       (2) Certain requirements.-- The Plan referred to in 
     paragraph (1) shall--
       (A) focus on strategies for increasing awareness about 
     inflammatory bowel disease within the general public and the 
     health care community in order to facilitate more timely and 
     accurate diagnoses; and
       (B) address mechanisms designed to prevent the progression 
     of the disease and the development of complications, such as 
     colorectal cancer, and other strategies and activities as 
     deemed appropriate.
       (c) Authorization of Appropriations.--For the purpose of 
     carrying out this section, there is authorized to be 
     appropriated such sums as may be necessary for fiscal year 
     2006.
                                 ______
                                 
      By Mr. SPECTER (for himself, Mr. Biden, Mr. Brownback, Mr. 
        Talent, Mr. DeWine, Mr. Corzine, Mr. Bingaman, Mr. Kyl, Mr. 
        Santorum, and Mr. Obama):
  S. 1934. A bill to reauthorize the grant program of the Department of 
Justice for reentry of offenders into the community, to establish a 
task force on Federal programs and activities relating to the reentry 
of offenders into the community, and for other purposes; to the 
Committee on the Judiciary.
  Mr. SPECTER. Mr. President, I have sought recognition to introduce, 
along with Senators Biden and Brownback, the Second Chance Act of 2005: 
Community Safety through Recidivism Prevention. This legislation is 
designed to reduce recidivism among adult and juvenile ex-offenders. 
Never before in our history have so many individuals been released from 
prison and never before in our history have so many ex-offenders been 
is prepared to reenter their communities. Each year, more than 650,000 
individuals are released, which roughly equates to about 1,700 
individuals returning communities each day. This number is expected to 
grow in the near future as more inmates complete their prison terms. 
For most offenders, the transition back into their communities is 
difficult because many lack the necessary skill to ensure a successful 
reentry. Many suffer from serious substance abuse addictions and mental 
health issues. Many have difficulty securing a job or adequate housing 
and often find themselves lured back to a life of crime. A study 
conducted by the Bureau of Justice Statistics reported that over two-
thirds of released prisoners were rearrested within three years and 
one-half of those rearrested were convicted and re-incarcerated. This 
high rate of recidivism devastates our towns and communities and puts 
an enormous strain on state and local budgets.
  The Second Chance Act reauthorizes the Adult and Juvenile Offender 
Reentry Demonstration projects, authorizing the Attorney General to 
make grants to States and local governments to establish offender 
reentry projects, with an enhanced focus on job training, housing, 
substance abuse and mental health treatment, and working with children 
and families. It also creates a new grant program available to 
nonprofit organizations for the purpose of providing mentoring and 
other transitional services essential to reintegrating ex-offenders. 
The Second Chance Act encourages new community partnerships to help 
educate, train, and employ these individuals who might otherwise return 
to a life of crime.
  Many ex-offenders are often stigmatized by their incarceration, and 
must face the reality that many employers are reluctant to hire them. A 
National Adult Literacy Study determined that a majority of prisoners 
are either illiterate or have marginal reading, writing, and math 
skills. Following the repeal of Pell Grant eligibility for incarcerated 
individuals, I worked to create the Grants to States for Workplace and 
Community Transition Training for Incarcerated Youth Offenders program. 
This program is aimed at providing post-secondary education, employment 
counseling, and workplace and community transition training for 
incarcerated youth offenders while in prison, which continue for up to 
one year after the individual is released. The current program limits 
expenditures per youth offender to $1,500 for tuition and books, and 
only allows an additional $300 for other related services. The Second 
Chance Act builds upon my earlier efforts by increasing State's 
flexibility and accountability within the grant program. It removes the 
cap and raises the allowable expenditure permitted for each youth 
offender to the maximum level of Pell Grants. One of the keys to 
preventing recidivism is access to education an in recognizing the 
impact that education an job training can have on incarcerated 
offenders. It is my sincere hope that this legislation will encourage 
incarcerated individuals to achieve their independence and to gain the 
necessary skills to become productive members of society.
  Another crisis that we'll face is the growing populations of 
prisoners who are parents. More than half of those currently 
incarcerated are parents of minor children. Female incarceration rates 
are increasing faster than those men, totaling 7 percent of the prison 
population. Of those incarcerated, 80 percent are mothers with, on 
average two dependent children. What is most troubling is that two-
thirds of their children are younger the the age of 10. The 
incarceration of a parent can have a tremendous impact on childhood 
development. Prison presents a unique

[[Page 24123]]

opportunity to improve a prisoner's ability to become a better part 
once they are released. Unfortunately, many of our prisons do not 
employ such programs, due to fiscal constraints as well as a shift in 
priorities. The Second Chance Act of 2005 encourages the creating of 
programs that facilitate visitation, if it is in the best interest of 
the child. It also directs the Secretary of Health and Human Services 
to establish services to help preserve family units, with special 
attention paid to the impact on the child of an incarcerated parent.
  There is ample evident that well-designed reentry programs reduce 
recidivism. Programs such as aftercare for substance abusers and adult 
vocational education have shown to reduce recidivism up to 15 percent. 
These programs pay for themselves by reducing future correction costs 
associated with re-housing these individuals upon their return back 
into the institution. The revolving door of prisons not only hurts 
those who are caught up in the process, but hurts their families and 
our communities. If we fail to address this problem, 1e are burdening 
our communities not only with greater expenditures, but in the risk of 
increased crime and unsafe neighborhoods. The more we can do to prepare 
these individuals when they return home, the better off we will all be. 
I urge my colleagues to join me in cosponsoring this legislation, and 
urge its swift adoption.
  Mr. BIDEN. Mr. President, Senator Specter, Senator Brownback, and I 
introduce today the Second Chance Act of 2005, which takes direct aim 
at reducing recidivism rates for our nation's ex-offenders and 
improving the transition for these offenders from prison back into the 
community.
  All too often we think about today, but not tomorrow. We look to 
short- term solutions for long-term problems. We need to have a change 
in thinking and approach. It's time we face the dire situation of 
prisoners reentering our communities with insufficient monitoring, 
little nor no job skills, inadequate drug treatment, insufficient 
housing, lack of positive influences, a pap city of basic physical and 
mental health services, and deficient basic life skills.
  The bill we introduce today is about providing a second chance for 
these ex-offenders, and the children and families that depend on them. 
It's about strengthening communities and ensuring safe neighborhoods.
  Since my 1994 Crime Bill passed, we've had great success in cutting 
down on crime rates in this country. Under the Community Oriented 
Policing Services, COPS, program, we've funded over 100,000 officers 
all across the country. And our crime rate has plummeted.
  But there's a record number of people currently serving time in our 
country--over 2 million in our federal and state prisons; with millions 
more in local jails. And 95 percent of all prisoners we lock up today 
will eventually get out. That equals nearly 650,000 being released from 
federal or state prisons to communities each year.
  If we are going to continue the downward trend of crime rates, we 
simply have to make strong, concerted, and common-sense efforts now to 
help ex-prisoners successfully reenter and reintegrate to their 
communities.
  And right now, we're not doing a good enough job. A staggering two-
thirds of released State prisoners are expected to be rearrested for a 
felony or serious misdemeanor within 3 years of release. Two out of 
every three. You're talking about hundreds of thousands of reoffending, 
ex-offenders each year and hundreds of thousands of serious crimes 
being committed by people who have already served time in jail.
  And, unfortunately, it's too difficult to see why such a huge portion 
of our released prisoners recommit serious crimes. Up to 60 percent of 
former inmates are not employed; 15-27 percent of prisoners expect to 
go to homeless shelters upon release; and 57 percent of federal and 70 
percent of state inmates used drugs regularly before prison, with some 
estim1tes of involvement with drugs or alcohol around the time of the 
offense as high as 84 percent.
  These huge numbers or released prisoners each year and the out-of-
control recidivism rates are a recipe for diaster--leading to untold 
damage, hardship, and death for victims; ruined futures and lost 
potential for re-offenders; and a huge drain on society at large. One 
particularly vulnerable group is the children of these offenders. We 
simply cannot be resigned to allowing generation after generation 
entering and reentering our prisons. This pernicious cycle must come to 
an end.
  My 1994 Crime Bill recognized these extraordinarily high rates of 
recidivism as a real problem. My bill, for example, created innovative 
drug treatment programs for State and Federal inmates to help them kick 
their habit.
  But this is only one piece of the puzzle. I introduced a bill in 2000 
that would have built on my 1994 Crime Bill--the ``Offender Reentry and 
Community Safety Act of 2000'' (S. 2908). This bill would have created 
demonstration reentry programs for Federal, State, and local prisoners. 
These programs were designed to assist high-risk, high-need offenders 
who served their prison sentences, but who posed the greatest risk of 
reoffending upon release because they lacked the education, job skills, 
stable family or living arrangements, and the health services they 
needed to successfully reintegrate into society.
  While we have made some progress on offender reentry efforts since 
1994, much more needs to be done. In the current session of Congress, I 
am pleased that colleagues of mine--from both sides of Capitol Hill and 
from both sides of the aisle--are also focusing their attention and 
this vital issue.
  Senators Specter and Brownback have been dedicated and tireless 
leaders on crime and public safety issues throughout their careers, and 
I am proud to join efforts with them today. Other Senators have also 
taken a leadership role on these issues, including Senators Leahy, 
Kennedy, Brownback, Hatch, Specter, Grassley, Feinstein, DeWine, 
Santorum, Landrieu, Bingaman, Coburn, Durbin, and Obama.
  The Second Chance Act of 2005 provides a competitive grant program to 
promote innovative programs to this out a variety of methods aimed at 
reducing recidivism rates. Efforts would be focus on post-release 
housing, education and job training, substance abuse and mental health 
services, and mentoring programs, just to name a few.
  Because the scope of the problem is so large--with 650,000 prisoners 
being released from state and federal prisons each year--our bill 
provides $100 million per year in competitive grant funding . This 
isn't being wasteful with our scarce federal resources, it's just an 
acknowledgement of the scope of the problem we're faced with.
  A relatively modest investment in offender reentry efforts compares 
very well with the alternative, building more and more prisons for 
these ex-offenders to return to if they are unable to successfully 
reenter their communities and instead are rearrested and reconvicted of 
more cries. We must remember that the average cost of incarcerating 
each prisoner exceeds 20,000 per year, with expenditures on corrections 
alone having increased from $9 billion in 1982 to $60 billion in 2002. 
We simply can't be penny-wise but pound-foolish.
  The Second Chance Act of 2005 also requires that federal departments 
with a role in offender reentry efforts coordinate and work together; 
to make sure there aren't duplicative efforts or funding gaps; and to 
coordinate reentry research. Our bill would raise the profile of this 
issue within the executive branch and secure the sustained and 
coordinated federal attention offender reentry efforts deserve.
  We also need to examine existing Federal and State reentry barriers--
laws, regulations, rules, and practices that make it more difficult for 
former inmates to successfully reintegrate back into their communities; 
laws that confine ex-offenders to society's margins, making it even 
more likely that they will recommit serious crimes and return to 
prison.
  Turning over a new leaf and going from a life of crime to becoming a 
productive member of society is tough enough. We shouldn't have Federal 
and

[[Page 24124]]

State laws on the books that make this even more challenging. That's 
not say that we don't want to restrict former drug addicts from working 
in pharmacies, for example, or to bar sex offenders from working it day 
care centers. But many communities across the country currently exclude 
ex-prisoners from virtually every occupation requiring a state license, 
like chiropractic care, engineering, and real estate. Lifting these 
senselessly punitive bans would make it easier for ex-offenders to stay 
out of prison.
  Our bill provides for a roust analysis of these federal and state 
barriers with recommendations on what next steps we need to take. And 
these reviews are mandated to take place out in the open under public 
scrutiny.
  The Second Chance Act also spurs state-of-the-art research and study 
on offender reentry issues. We need to know who is most likely to 
recommit crimes when they are released, to better target our limited 
resources where they can do the most good. We need to study why some 
ex-offenders who seem to have the entire deck stacked against them are 
able to become successful and productive members of our society. We 
need to know what, works and how we can replicate what works for 
others.
  Our bill also provides a whole slew of common-sense proposals in the 
areas of job training, employment, education, post-release housing, 
substance abuse, and prisoner mentoring--efforts and changes in law 
that we can do now.
  Our Second Chance Act is a next, natural step in our campaign against 
crime. Making a dent in recidivism rate is an enormous undertaking; one 
that requires action now and continued focus in the future. I commit to 
vigorously pushing this legislation as well as keeping an eye on what 
steps we need to take in the future. We need to realize that the 
problems facing ex-offenders are enormous and will need sustained 
focus. The safety of our neighbors, our children, and our communities 
depends on it.
  I am proud today to join with Senator Specter and Senator Brownback 
in introducing the Second Chance Act and ask our colleagues to join 
with us in this vital effort.
  Mr. BROWNBACK. Mr. President, I am please to join with Chairman 
Specter and Senator Biden today as we introduce a bill that will have a 
dramatic and positive effect in the lives of individuals re-entering 
society after incarceration. The Second Chance Act: Community Safety 
Through Recidivism Prevention is a bill that will not only protect our 
Nation's citizens but will more importantly help to reduce recidivism 
in our Nation.
  A hallmark of any just society lies in its ability to protect the 
interest of all its citizens and I am proud that the United States is a 
leader in this regard. Yet, while we continue to strive toward this 
lofty goal, we must realize that there are areas in which we, as a 
society and as government, must do more to improve. No where is that 
more apparent than in our Nation's pension system.
  Today, we have challenges within the prison system that range from 
high recidivism rates to budgetary and safety concerns. With this bill, 
we will be able to address this pressing problem within our society. 
Already we have seen innovative and model programs within the states 
and the faith community, and I am proud to say that Kansas is a leader 
in this regard, as well a such faith organizations as Prison Fellowship 
Ministries, Catholic Charities U.S.A., and the Salvation Army. However, 
we must stimulate innovation in this area on a national level and that 
is what this bill will accomplish. It is paramount that we ensure the 
safety of our communities and ensure that those incarcerated have the 
tools necessary to succeed after they rejoin society.
  With this bill, we wil1 be able to combat the extremely high 
recidivism rates plaguing the prison system, currently as high as 70 
percent, as well as address the financial burdens that hinder many of 
our state penitentiaries. State prison operating expenditures totaled 
$28.4 billion in fiscal year 2001, or a nationwide average annual 
operating cost of $22,650 per inmate. Today, it is more likely than 
ever that a person released from prison will be rearrested--two-thirds 
of state prisoners are rearrested within 3 years of release. Depending 
of the expert consulted, between one-third and two-thirds of all prison 
re-admissions are related to probation or parole violations and at 
least half of those violations are technical.
  We must stop subsidizing programs that do not work and that lead, in 
turn, to negative behavior.
  I am confident that the bill we are putting forward today will indeed 
take the much needed steps to reduce the recidivism rate in this 
Nation, which will in turn help those incarcerated make positive 
changes within their lives so that when they do rejoin society, they 
will be able to do so with the confidence of knowing that they can 
contribute to society in a positive manner. As an added incentive to 
recidivism reduction, each grant application submitted under this 
program must have as its strategic plan a goal to reduce recidivism by 
50 percent in 5 years and in order to receive continued funding under 
this program, each granted must show a reduction in the recidivism rate 
of participants by 10 percent over 2 years.
  Specifically, this bill facilitates change within our current 
correctional system, and promotes coordination with the Federal 
Government to better assist those returning to our communities after 
incarceration their children. The bill reauthorizes the Re-Entry 
Demonstration Project with an enhanced focus on jobs, housing, 
substance abuse treatment, mental health, and the children and families 
of those incarcerated. The bill authorizes $200 million over a period 
of two years to fund these demonstration programs and creates 
performance outcome standards and deliverables. It will also encourage 
states to enhance their re-entry services and systems with grants to 
fund the creation or enhancement of state re-entry councils for 
strategic planning and review the state barriers and resources that 
exit.
  Additionally, the bill creates a Federal interagency taskforce to 
facilitate collaboration and identify innovative programs initiatives. 
The taskforce will review and report to Congress on the Federal 
barriers that exist to successful re-entry.
  Furthermore, the bill creates a $50 million 2 year mentoring program 
geared toward reducing recidivism and the societal costs of recidivism. 
This mentoring program will help ex-offenders re-integrate into their 
communities. This initiative will specifically harness the resources 
and experience of community-based organizations in helping returning 
ex-offender.
  Finally, the bill amends the Workplace and Community Transition 
Training for Incarcerated Youth Offenders Act by improving the existing 
grants to States under this program and provides $60 million for the 
administration of the program. This youth program calls for expanding 
the eligibility age from 25 to 35 years, increases accountability by 
requiring State correctional education agencies to track specific and 
quantified student outcomes referenced to non-program participants, and 
increases the allowable expenditure per youth offender up to the level 
of the maximum Federal Pell Grant award for tuition, books and 
essential materials; and related services, such as career development.
  We have an incredible opportunity to re-shape the way in which this 
nation's prison systems operate. Much like welfare reform in the mid 
1990s, we have a chance to make real and effective change in an area 
where change is sorely needed. I look forward to pushing this 
legislation forward.

                          ____________________