Honoring All Veterans Act of 2011

Mr. President, we all have a shared commitment to our Nation's veterans. That shared commitment is reflected in many of the programs that are supported by yourself and my other colleagues in this body every year. I deeply respect the knowledge and dedication that my fellow Senators have brought to this critical issue. Each of my colleagues, almost without exception, has supported measures that have helped our veterans over the years.

I rise to introduce my first piece of legislation, a bill to help our Nation's veterans.

Our Nation must keep faith with the men and women who have served and sacrificed for our freedom. Unfortunately, and unconscionably, America is still failing them and their families by tolerating unemployment, homelessness, and inadequate health care. We must renew our commitment to the more than 250,000 veterans in Connecticut and 22 million across the country to ensure that no veteran is left behind.

Our commitment to veterans must be unwavering. Despite our best intentions, we fail all too often to accord our veterans the support they have earned. Unfortunately, according to the Department of Veterans Affairs, more than 76,000 veterans are homeless on any given night and nearly twice that number will be homeless at some point during the year. The unemployment rate among veterans has doubled over the past 3 years. Twenty-seven percent of veterans in their early twenties are unemployed. That number is almost twice the unemployment rate of their peers who have not served in the military. The Bureau of Labor Statistics recently reported that unemployment for veterans who served their country after September 2001 to be 11.5 percent, again, a figure far higher than the national unemployment rate.

Twenty percent of Iraq and Afghanistan war veterans are estimated to suffer from post-traumatic stress disorder. When veterans return home, they must wait at least half a year, on average, for a claims decision by the Department of Veterans Affairs before they can receive benefits. Those numbers are simply unacceptable. As I speak today, America's longest war continues, with less than 1 percent of the Nation in uniform. Never in the history of the country have so few fought for so long, at such great personal cost and sacrifice.

Under the leadership of Secretary Shinseki, the Department of Veterans Affairs has taken strong steps toward the goal of building a 21st century system that supports caregivers of seriously injured Iraq and Afghanistan veterans, improving services to women veterans, expanding the availability of health care, and preventing veteran homelessness.

Gaps in the system remain, and they are debilitating, destructive, and devastating for many veterans. We can do better and we must do more. The legislation I introduce today is entitled Honoring All Veterans Act of 2011. Its 16 comprehensive provisions are only the first phase of my efforts.

This legislative proposal is a comprehensive package but only an opening salvo in a sustained, unceasing campaign to ensure that no veteran is left behind. It is a downpayment on a larger debt. The goal is to give all veterans the homecoming and the services they need and deserve. Our military men and women have kept their promise to serve and sacrifice for this country, and we must now keep faith with them. Our commitment to veterans should reflect the depth of their sacrifice. This measure is entitled Honoring All Veterans Act because all veterans are brave service men and women, serving today in places we can barely pronounce the names of. They are deployed around the globe, and they deserve to be honored for defending our freedom and democracy. We must honor that service not only in words but in deed.

This legislation comes from veterans and their families--seeing and hearing their struggles and dreams, their achievements and defeats as I have worked for them during my 20 years as attorney general and 4-plus months as a Senator.

In the VFW and American Legion halls, in living rooms, in school auditoriums, and in countless gatherings across the State of Connecticut, I have been privileged to listen and learn from veterans and their families who have shared their personal stories and insights.

This legislation simply continues the work I have done as attorney general. I worked to make the Department of Defense release information on those who may have been improperly separated from military service, and urged the Department of Veterans Affairs to update its obsolete database systems that were preventing tens of thousands of disabled veterans from obtaining deserved tax benefits. In 2007, I worked with the Connecticut congressional delegation to make the Department of Defense provide accurate information about educational benefits to veterans. I have fought for them individually when they encountered bureaucratic resistance and red tape from an unresponsive system. I am proud of that work and proud, most important, of my partnership with veterans in Connecticut in proposing this legislation. My goal then, and it has been continuously, is to keep faith with our veterans, to honor our promises to them.

This Honoring All Veterans Act of 2011 will address four key areas: first, expanding job opportunities for veterans; second, assisting homeless veterans; third, improving veterans health care, with a special emphasis on mental health services; fourth, modernizing the Department of Veterans Affairs.

On expanding job opportunities to honor all veterans and give them the welcome home they deserve, we need to focus first on jobs. Like all Americans, veterans are striving to provide for their families and participate in the economic recovery to find jobs in our slowly recovering economy. Good jobs require education and training, as well

as independent living services for veterans. Our Nation has done much to address this issue, such as the expanded post-9/11 GI bill, but gaps in the system remain. They are all too glaring. My legislation will expand job opportunities in five significant ways.

First, the legislation raises the statutory cap for the Vocational Rehabilitation and Employment Independent Living Program to welcome hundreds of additional veterans. This vital program helps veterans with severe service-connected disabilities, enabling them to live independently. It helps veterans with those kinds of disabilities to participate in family and community life and increases their potential to return to work. There is a strong case for removing the cap on participation in the program. I would like to recognize the distinguished junior Senator from Hawaii for the work that he has done in this regard. I hope that my legislation will ensure the program can continue to assist veterans coming back from Iraq and Afghanistan, while Congress works to find funding to remove the cap completely.

Second, the legislation authorizes veterans to reuse the Department of Defense Transition Assistance Program, known as TAP, and meet with counselors at any military installation for up to 1 year after their separation. This program was developed to assist military personnel leaving the service with information about jobs, education, and career development. Veterans returning to Connecticut wishing to participate again in the Transition Assistance Program should have that opportunity to participate for a second time, maybe even a third time. Coming back from deployment, servicemembers are often focused on other important aspects of the transition process, rather than how to find a job. They may have never written a resume before or attended a job interview. Having started the job search they have specific areas where they realize they need help. I discussed this idea at a recent Senate Armed Services Committee hearing with the Assistant Secretary of the Navy for Manpower and Reserve Affairs. He testified that the military is right now in the process of redesigning the TAP program. I am going to work toward having this provision included in the redesign of the TAP program so that TAP continues to be an opportunity once a servicemember returns home.

Third, the legislation authorizes a study of how best to ensure that civilian employers and educational institutions recognize veterans' military training. The military recruits the most talented men and women in America to serve, and then it invests heavily in their professional development. Yet when they trade their uniforms in for civilian clothes, employers and others such as professional accrediting organizations often refuse to recognize or understand how to make use of their military experience and the expertise they have gained.

The Iraq and Afghanistan Veterans of America reported that 61 percent of employers do not believe they have ``a complete understanding of the qualifications ex-servicemembers offer,'' and recently separated servicemembers with college degrees earn on average almost $10,000 less per year than their nonveteran counterparts.

One way to close this gap is to have the Department of Defense review the list of military occupations specialties, such as the 22 MOS's in Army engineering or 16 MOS's in Army communications, and ensure that completing MOS qualifications will provide those servicemembers with credentials recognized by civilian employers.

The study authorized in this legislation will start that process. I am committed to working in the Senate to see this problem resolved.

Fourth, the legislation reauthorizes the Veterans Education Outreach Program to provide money for campus-based outreach services to veterans. This program was first established in 1972 to provide colleges with a significant number of veterans on campus with additional resources to make sure those students get the most out of their educational experience and use VA benefits available to assist them. I believe that the return of veterans from deployments during the Global War on Terror requires the same kind of on-campus support. While there are other programs helping veterans pay the cost of tuition and many colleges have great veterans services on-campus, the Veterans Education Outreach Program is the missing link to ensuring veterans are informed about their VA benefits and maximizing the opportunity to study and obtain employment.

Fifth, the legislation authorizes a comprehensive program at the Department of Labor to assist veterans with TBI or PTSD in the workplace. It provides technical assistance to employers of veterans living with those conditions and provides best practices relating to helping those employees develop successful strategies for on-the-job success. The legislation requires the Office of Disability Employment Policy to coordinate an inter-agency working group which will produce a federal homecoming plan for reintegration of these veterans. These tasks have been conducted to a limited degree by the Department of Labor through the America's Heroes at Work program and the Veterans Employment & Training Services and they are to be commended for their efforts to date. However, by defining these requirements in statute, it is my hope that these programs will expand to reach all veterans that need help.

This legislation also reaches veterans in a variety of other key areas. Recently, a female veteran visited my office. She and her two children were homeless and needed help. In their case, we could find temporary shelter. But on the issue of homelessness, many veterans do not know where to turn or are hesitant to do so. The current per diem given to homeless veterans does not address rising costs and regional variations in helping homeless veterans. Women are particularly underserved now, and my hope is that new housing projects take care of female veterans. For example, the Newington Mission Homeless Project in my state will help forgotten heroes find shelter. The Honoring All Veterans Act reforms the per diem program and helps military families avoid homelessness by permanently extending their foreclosure protection for servicemembers.

On improving veteran health care and mental health services, as I have traveled Connecticut meeting with veterans, I have seen firsthand how veterans with traumatic brain injury or post-traumatic stress disorder face unique challenges in accessing the Department of Veterans Affairs for benefits and medical assistance. Veterans deserve the best possible medical care, particularly when it comes to treating TBI or post-traumatic stress. These are the signature wounds of the conflicts in Afghanistan and Iraq. More than a quarter of these injuries are undiagnosed, according to the military itself. Then too often, even if they are diagnosed, servicemembers are screened but do not receive a full course of treatment.

To address this issue, my legislation requires the Department of Defense to identify and then close the gap between screenings and treatment. Simply diagnosing a soldier or a marine with symptoms of PTSD or TBI does not heal them.

This legislation also addresses the problem of finding qualified psychiatrists, psychologists, and nursing professionals to work in VA medical hospitals and outpatient clinics by accessing graduates from the Uniformed Services University of the Health Sciences. This university trains outstanding medical professionals for military service. Under existing law the Secretary may exempt graduates from working in a military hospital after graduation, based upon forecast demand. The Honoring All Veterans Act allows those graduates identified by the Secretary as excess to military requirements to serve out their commitment in the VA medical systems, rather than releasing them to private hospitals. This provision is just one example of how the legislation is crafted to better utilize the existing resources of the DOD and VA medical systems.

Modernizing the Department of Veterans Affairs is the final section of this legislation. It addresses the DOD and VA transition process through improved monitoring and oversight. It increases pension benefits and gives veterans grounds for appeal at the Board of Veterans Appeals if the VA has misplaced or misfiled their documents.

I hear about this problem, as my colleagues do, again and again as I listen to veterans. Recently, a veteran visited

my office. He has been waiting on a hearing date with the Board of Veterans Appeals for over a year.

His story is typical.

This legislation provides much needed improvement to the Board of Veterans Appeals. I look forward to working with my colleagues to address other much needed improvements.

We can honor our veterans whose claims are stuck in the Board of Veterans Appeals by confirming judges to the court that reviews them. Three of those nine seats are now vacant, and each judge must preside over 600 cases per year, far more than any other Federal appellate court.

Finally, in closing, let me recognize the many veterans throughout the State of Connecticut who helped me craft this measure.

I thank CDR Richard DiFederico of the VFW and CDR Daniel Thurston of the American Legion for their very dedicated work, not only in assisting me but day in and day out on behalf of veterans.

I thank Bob Janicki, who has spent recent years after serving this country in the U.S. Marine Corps during the Vietnam era, for providing help to homeless veterans and veterans seeking jobs.

Paul ``Bud'' Bucha is a veteran and friend with the most distinguished service record possible in winning the Medal of Honor. His life after military service, giving back to other veterans and managing several successful companies, has been an example of how veterans continue to provide leadership with courage and vision.

MSG Frank Alvarado has made a number of very helpful suggestions, including, for example, reauthorizing the Veterans Education Outreach Program.

I would also like to acknowledge my deep respect to Dr. Linda Schwartz, who has been a tireless advocate for all veterans.

Connecticut is blessed to have the leadership of veterans who help each other, care for each other, look out for each other. I look forward to working with them in ensuring that this legislation is passed. I have no illusions that accomplishing passage of these kinds of measures will be easy, but I hope for support across the aisle. This kind of goal certainly ought to unite us, not divide us. We have so much more in common on this issue than in conflict. I am hoping we can work together to ensure that we keep faith with our veterans, that we honor their service, ensure that we welcome them home with the kind of services they need and deserve so that no veteran will be left behind.

Mr. President, I ask unanimous consent to have printed in the Record a summary of this legislation.

Mr. President, we all have a shared commitment to our Nation's veterans. That shared commitment is reflected in many of the programs that are supported by yourself and my other colleagues in this body every year. I deeply respect the knowledge and dedication that my fellow Senators have brought to this critical issue. Each of my colleagues, almost without exception, has supported measures that have helped our veterans over the years.

I rise to introduce my first piece of legislation, a bill to help our Nation's veterans.

Our Nation must keep faith with the men and women who have served and sacrificed for our freedom. Unfortunately, and unconscionably, America is still failing them and their families by tolerating unemployment, homelessness, and inadequate health care. We must renew our commitment to the more than 250,000 veterans in Connecticut and 22 million across the country to ensure that no veteran is left behind.

Our commitment to veterans must be unwavering. Despite our best intentions, we fail all too often to accord our veterans the support they have earned. Unfortunately, according to the Department of Veterans Affairs, more than 76,000 veterans are homeless on any given night and nearly twice that number will be homeless at some point during the year. The unemployment rate among veterans has doubled over the past 3 years. Twenty-seven percent of veterans in their early twenties are unemployed. That number is almost twice the unemployment rate of their peers who have not served in the military. The Bureau of Labor Statistics recently reported that unemployment for veterans who served their country after September 2001 to be 11.5 percent, again, a figure far higher than the national unemployment rate.

Twenty percent of Iraq and Afghanistan war veterans are estimated to suffer from post-traumatic stress disorder. When veterans return home, they must wait at least half a year, on average, for a claims decision by the Department of Veterans Affairs before they can receive benefits. Those numbers are simply unacceptable. As I speak today, America's longest war continues, with less than 1 percent of the Nation in uniform. Never in the history of the country have so few fought for so long, at such great personal cost and sacrifice.

Under the leadership of Secretary Shinseki, the Department of Veterans Affairs has taken strong steps toward the goal of building a 21st century system that supports caregivers of seriously injured Iraq and Afghanistan veterans, improving services to women veterans, expanding the availability of health care, and preventing veteran homelessness.

Gaps in the system remain, and they are debilitating, destructive, and devastating for many veterans. We can do better and we must do more. The legislation I introduce today is entitled Honoring All Veterans Act of 2011. Its 16 comprehensive provisions are only the first phase of my efforts.

This legislative proposal is a comprehensive package but only an opening salvo in a sustained, unceasing campaign to ensure that no veteran is left behind. It is a downpayment on a larger debt. The goal is to give all veterans the homecoming and the services they need and deserve. Our military men and women have kept their promise to serve and sacrifice for this country, and we must now keep faith with them. Our commitment to veterans should reflect the depth of their sacrifice. This measure is entitled Honoring All Veterans Act because all veterans are brave service men and women, serving today in places we can barely pronounce the names of. They are deployed around the globe, and they deserve to be honored for defending our freedom and democracy. We must honor that service not only in words but in deed.

This legislation comes from veterans and their families--seeing and hearing their struggles and dreams, their achievements and defeats as I have worked for them during my 20 years as attorney general and 4-plus months as a Senator.

In the VFW and American Legion halls, in living rooms, in school auditoriums, and in countless gatherings across the State of Connecticut, I have been privileged to listen and learn from veterans and their families who have shared their personal stories and insights.

This legislation simply continues the work I have done as attorney general. I worked to make the Department of Defense release information on those who may have been improperly separated from military service, and urged the Department of Veterans Affairs to update its obsolete database systems that were preventing tens of thousands of disabled veterans from obtaining deserved tax benefits. In 2007, I worked with the Connecticut congressional delegation to make the Department of Defense provide accurate information about educational benefits to veterans. I have fought for them individually when they encountered bureaucratic resistance and red tape from an unresponsive system. I am proud of that work and proud, most important, of my partnership with veterans in Connecticut in proposing this legislation. My goal then, and it has been continuously, is to keep faith with our veterans, to honor our promises to them.

This Honoring All Veterans Act of 2011 will address four key areas: first, expanding job opportunities for veterans; second, assisting homeless veterans; third, improving veterans health care, with a special emphasis on mental health services; fourth, modernizing the Department of Veterans Affairs.

On expanding job opportunities to honor all veterans and give them the welcome home they deserve, we need to focus first on jobs. Like all Americans, veterans are striving to provide for their families and participate in the economic recovery to find jobs in our slowly recovering economy. Good jobs require education and training, as well

as independent living services for veterans. Our Nation has done much to address this issue, such as the expanded post-9/11 GI bill, but gaps in the system remain. They are all too glaring. My legislation will expand job opportunities in five significant ways.

First, the legislation raises the statutory cap for the Vocational Rehabilitation and Employment Independent Living Program to welcome hundreds of additional veterans. This vital program helps veterans with severe service-connected disabilities, enabling them to live independently. It helps veterans with those kinds of disabilities to participate in family and community life and increases their potential to return to work. There is a strong case for removing the cap on participation in the program. I would like to recognize the distinguished junior Senator from Hawaii for the work that he has done in this regard. I hope that my legislation will ensure the program can continue to assist veterans coming back from Iraq and Afghanistan, while Congress works to find funding to remove the cap completely.

Second, the legislation authorizes veterans to reuse the Department of Defense Transition Assistance Program, known as TAP, and meet with counselors at any military installation for up to 1 year after their separation. This program was developed to assist military personnel leaving the service with information about jobs, education, and career development. Veterans returning to Connecticut wishing to participate again in the Transition Assistance Program should have that opportunity to participate for a second time, maybe even a third time. Coming back from deployment, servicemembers are often focused on other important aspects of the transition process, rather than how to find a job. They may have never written a resume before or attended a job interview. Having started the job search they have specific areas where they realize they need help. I discussed this idea at a recent Senate Armed Services Committee hearing with the Assistant Secretary of the Navy for Manpower and Reserve Affairs. He testified that the military is right now in the process of redesigning the TAP program. I am going to work toward having this provision included in the redesign of the TAP program so that TAP continues to be an opportunity once a servicemember returns home.

Third, the legislation authorizes a study of how best to ensure that civilian employers and educational institutions recognize veterans' military training. The military recruits the most talented men and women in America to serve, and then it invests heavily in their professional development. Yet when they trade their uniforms in for civilian clothes, employers and others such as professional accrediting organizations often refuse to recognize or understand how to make use of their military experience and the expertise they have gained.

The Iraq and Afghanistan Veterans of America reported that 61 percent of employers do not believe they have ``a complete understanding of the qualifications ex-servicemembers offer,'' and recently separated servicemembers with college degrees earn on average almost $10,000 less per year than their nonveteran counterparts.

One way to close this gap is to have the Department of Defense review the list of military occupations specialties, such as the 22 MOS's in Army engineering or 16 MOS's in Army communications, and ensure that completing MOS qualifications will provide those servicemembers with credentials recognized by civilian employers.

The study authorized in this legislation will start that process. I am committed to working in the Senate to see this problem resolved.

Fourth, the legislation reauthorizes the Veterans Education Outreach Program to provide money for campus-based outreach services to veterans. This program was first established in 1972 to provide colleges with a significant number of veterans on campus with additional resources to make sure those students get the most out of their educational experience and use VA benefits available to assist them. I believe that the return of veterans from deployments during the Global War on Terror requires the same kind of on-campus support. While there are other programs helping veterans pay the cost of tuition and many colleges have great veterans services on-campus, the Veterans Education Outreach Program is the missing link to ensuring veterans are informed about their VA benefits and maximizing the opportunity to study and obtain employment.

Fifth, the legislation authorizes a comprehensive program at the Department of Labor to assist veterans with TBI or PTSD in the workplace. It provides technical assistance to employers of veterans living with those conditions and provides best practices relating to helping those employees develop successful strategies for on-the-job success. The legislation requires the Office of Disability Employment Policy to coordinate an inter-agency working group which will produce a federal homecoming plan for reintegration of these veterans. These tasks have been conducted to a limited degree by the Department of Labor through the America's Heroes at Work program and the Veterans Employment & Training Services and they are to be commended for their efforts to date. However, by defining these requirements in statute, it is my hope that these programs will expand to reach all veterans that need help.

This legislation also reaches veterans in a variety of other key areas. Recently, a female veteran visited my office. She and her two children were homeless and needed help. In their case, we could find temporary shelter. But on the issue of homelessness, many veterans do not know where to turn or are hesitant to do so. The current per diem given to homeless veterans does not address rising costs and regional variations in helping homeless veterans. Women are particularly underserved now, and my hope is that new housing projects take care of female veterans. For example, the Newington Mission Homeless Project in my state will help forgotten heroes find shelter. The Honoring All Veterans Act reforms the per diem program and helps military families avoid homelessness by permanently extending their foreclosure protection for servicemembers.

On improving veteran health care and mental health services, as I have traveled Connecticut meeting with veterans, I have seen firsthand how veterans with traumatic brain injury or post-traumatic stress disorder face unique challenges in accessing the Department of Veterans Affairs for benefits and medical assistance. Veterans deserve the best possible medical care, particularly when it comes to treating TBI or post-traumatic stress. These are the signature wounds of the conflicts in Afghanistan and Iraq. More than a quarter of these injuries are undiagnosed, according to the military itself. Then too often, even if they are diagnosed, servicemembers are screened but do not receive a full course of treatment.

To address this issue, my legislation requires the Department of Defense to identify and then close the gap between screenings and treatment. Simply diagnosing a soldier or a marine with symptoms of PTSD or TBI does not heal them.

This legislation also addresses the problem of finding qualified psychiatrists, psychologists, and nursing professionals to work in VA medical hospitals and outpatient clinics by accessing graduates from the Uniformed Services University of the Health Sciences. This university trains outstanding medical professionals for military service. Under existing law the Secretary may exempt graduates from working in a military hospital after graduation, based upon forecast demand. The Honoring All Veterans Act allows those graduates identified by the Secretary as excess to military requirements to serve out their commitment in the VA medical systems, rather than releasing them to private hospitals. This provision is just one example of how the legislation is crafted to better utilize the existing resources of the DOD and VA medical systems.

Modernizing the Department of Veterans Affairs is the final section of this legislation. It addresses the DOD and VA transition process through improved monitoring and oversight. It increases pension benefits and gives veterans grounds for appeal at the Board of Veterans Appeals if the VA has misplaced or misfiled their documents.

I hear about this problem, as my colleagues do, again and again as I listen to veterans. Recently, a veteran visited

my office. He has been waiting on a hearing date with the Board of Veterans Appeals for over a year.

His story is typical.

This legislation provides much needed improvement to the Board of Veterans Appeals. I look forward to working with my colleagues to address other much needed improvements.

We can honor our veterans whose claims are stuck in the Board of Veterans Appeals by confirming judges to the court that reviews them. Three of those nine seats are now vacant, and each judge must preside over 600 cases per year, far more than any other Federal appellate court.

Finally, in closing, let me recognize the many veterans throughout the State of Connecticut who helped me craft this measure.

I thank CDR Richard DiFederico of the VFW and CDR Daniel Thurston of the American Legion for their very dedicated work, not only in assisting me but day in and day out on behalf of veterans.

I thank Bob Janicki, who has spent recent years after serving this country in the U.S. Marine Corps during the Vietnam era, for providing help to homeless veterans and veterans seeking jobs.

Paul ``Bud'' Bucha is a veteran and friend with the most distinguished service record possible in winning the Medal of Honor. His life after military service, giving back to other veterans and managing several successful companies, has been an example of how veterans continue to provide leadership with courage and vision.

MSG Frank Alvarado has made a number of very helpful suggestions, including, for example, reauthorizing the Veterans Education Outreach Program.

I would also like to acknowledge my deep respect to Dr. Linda Schwartz, who has been a tireless advocate for all veterans.

Connecticut is blessed to have the leadership of veterans who help each other, care for each other, look out for each other. I look forward to working with them in ensuring that this legislation is passed. I have no illusions that accomplishing passage of these kinds of measures will be easy, but I hope for support across the aisle. This kind of goal certainly ought to unite us, not divide us. We have so much more in common on this issue than in conflict. I am hoping we can work together to ensure that we keep faith with our veterans, that we honor their service, ensure that we welcome them home with the kind of services they need and deserve so that no veteran will be left behind.

Mr. President, I ask unanimous consent to have printed in the Record a summary of this legislation.

Madam President, I know Senator Blumenthal is coming to speak and Senator Kerry ended a little bit early. I wish to get up for a couple minutes now, and when Senator Blumenthal comes in I will yield to him because he has some time reserved.

I wish to talk this morning a little bit about the procedure and what we have gone through, in terms of the PATRIOT Act.

I am very discouraged to see the path we are headed down in terms of the PATRIOT Act. I was in the Congress, as the Presiding Officer knows, when we voted almost 10 years ago on the PATRIOT Act. It was a sad occasion then because it was right after 9/11 and that horrible tragedy had happened to our country. But we rushed, in a very big way, to move forward with a piece of legislation, the so-called PATRIOT Act. That act ended up being something I think many of us regret.

I wish to read a short passage from the Washington Post at the time, which I think showed the haste in which we acted, where we infringed on our constitutional rights, and I think the Post says it all. They noted:

Members of both parties complained they had no idea what

they were voting on, were fearful that aspects of the . . .

bill went too far--yet voted for it anyway.

I can tell you that, at the time, that is the way it was. We were on the floor, we had the vote, and nobody knew what was in the bill. I remember one Congressman waiving a copy of the bill, saying there is only one copy on the floor and it is hot off the Xerox machine. So it is unfortunate we moved so quickly, with so much haste.

Almost 10 years later, we have not had the debate we need to have on this piece of legislation. The greatest deliberative body has not weighed in with amendments. We have not moved forward in a serious way to try to tackle this piece of legislation that is so important to our country, important to our freedom, and important to our liberty.

What are the problems we should be dealing with? Just very quickly--I know my colleague, Senator Blumenthal, is here, so I will quickly move on. But two things have happened that indicate we have some serious problems with the PATRIOT Act. No. 1, in March of 2007, the inspector general of the Department of Justice, in a report concluded that ``the FBI engaged in serious misuse of national security letter authority.'' The report also said that ``in many instances, the FBI's misuse of national security letters violated NSL statutes, Attorney General guidelines, or the FBI's own internal policies.''

So there we have an inspector general telling us that the executive branch, with the piece of legislation, moved way beyond where they should. That is something we should take a hard look at. I have an amendment, and I know others do, on that.

There have also been courts that have looked at parts of the PATRIOT Act and found that act to be unconstitutional. It is incumbent upon us, when we have a ruling such as that, to look at it and offer amendments and try to make changes.

I harken back to what I remember reflecting on, on that day when we passed the act. Benjamin Franklin--talking about our precious freedom and liberty--said this, and I will paraphrase. He said something along these lines: Those who would sacrifice liberty for security deserve neither. So that is where we are today.

The so-called PATRIOT Act was enacted nearly a decade ago. Hastily passed by a Congress left reeling in the wake of a devastating terrorist attack on our Nation. Its supporters described it as a way to protect our Nation from similar attacks in the future. But this far- reaching piece of legislation went much farther than that. The PATRIOT Act's most enduring legacy is this: It gave the Federal Government the power to undermine the constitutional right to privacy of law-abiding citizens.

I was a Member of the House of Representatives at the time. One of only 66 Members to vote against passing the PATRIOT Act. It was an unpopular vote at the time. But when the details of the new law were examined, its breaches on our civil liberties became clearer. And the truth came out. As I have said, the Washington Post noted, ``members of both parties complained they had no idea what they were voting on, were fearful that aspects of the . . . bill went too far--yet voted for it anyway.''

I also voted against the reauthorization of the PATRIOT Act in 2006, as well as the FISA Amendments Act of 2008. In February, I once again opposed the extension of three controversial provisions of the PATRIOT Act: roving wiretaps . . . government access to ``any tangible items'' such as library and business records . . . and the surveillance of targets who are not connected to an identified terrorist group.

Back in 2001, I said on the House floor that I was ``unable to support this bill because it does not strike the right balance between protecting our liberties and providing for the security of our citizens.''

I went on to explain that ``the saving grace here is that the sunset provision forces us to come back and to look at these issues again when heads are cooler and when we are not in the heat of battle.''

And that is exactly what we should do. To govern in a post-9/11 world, we have to strike a delicate balance: We must prevent the terrorist actions of some, without infringing on the constitutional guarantees of the vast many. We are failing to strike that balance today by forcing reauthorizations of the PATRIOT Act without scrutinizing the long-term ramifications of the law.

Voting for the PATRIOT Act in the shadow of the 9/11 attacks was justifiable for many; that horrific day created an unparalleled sense of urgency. Today, we are once again up against a sense of urgency to renew the controversial provisions of the law set to expire this week.

But it's no longer due to a recent attack. Instead, the urgency has been created by the false argument that our Nation will be more vulnerable to attack if we dare to let the provisions expire.

Let's be honest in this debate--not act hastily out of false fears. Even if the provisions expire, the sunsets contain an exception for ongoing investigations. And the government can continue to use those provisions beyond this week.

Perhaps the real fear is that the time it would take for real debate might postpone our Memorial Day recess. We were promised a real debate on this reauthorization, and we should have it!

With a decade of hindsight, more voices from very different places on the political spectrum agree--the entire law bears scrutiny and debate. We can no longer neglect our duty. It is our responsibility to review the full scope of a law with such serious constitutional challenges before rushing to reauthorize it, again.

I have filed two amendments that I hope the Senate will consider and vote on.

The first is very simple. It extends the expiring provisions until September so that we can have a real, substantive debate and an open amendment process. This is what we thought the 3-month extension passed in February was intended to do, but adequate floor time was never scheduled and we have been extremely limited in our ability to offer amendments.

This is by no means an ideal solution. In fact, I voted against the short-term extension in February. But if our options are an extension until September and an extension until 2015, I am willing to accept the lesser of two evils. I thank Senator Merkley for cosponsoring this amendment.

The second amendment I have filed would reinstate a sunset provision for national security letters. This provision was in Senator Leahy's bill that was reported out of his committee and is in his amendment, but I feel strongly that it should also be considered as a stand-alone because of the importance of this issue.

National security letters do not require a court order. They are a form of administrative subpoena issued by FBI agents and other officials. A March 2007 report by the Department of Justice inspector general ``concluded that the FBI engaged in serious misuse of NSL authority.''

It also said that ``in many instances, the FBI's misuse of national security letters violated NSL statutes, Attorney General guidelines, or the FBI's own internal policies.''

I believe that there must be a sunset provision for NSLs to ensure that Congress periodically reevaluates this

power and is certain that it is not being abused.

I have also signed on as a cosponsor to several of my colleagues' amendments. Let me just comment briefly about some of these.

In addition to my NSL amendment, I cosponsored Senator Paul's amendment that prohibits any officer or employee of the United States from issuing an NSL unless a FISA court judge finds that probable cause exists to issue the NSL. This would bring NSLs into compliance with the plain text of fourth amendment.

I am pleased to join Senators Mark Udall and Paul on an amendment that would eliminate the possibility of ``John Doe'' roving wiretaps that identify neither the person nor the phone to be wiretapped. This would protect innocent Americans from unnecessary surveillance and was part of the JUSTICE Act that I cosponsored in the last Congress.

I have also cosponsored Mark Udall's amendment that would direct the attorney general to only delegate the authority for approving ``lone wolf'' surveillance to the deputy attorney general. It would also require the attorney general to provide notice to Congress of applications for ``lone wolf'' surveillance.

Finally, with Senator Sanders, I have cosponsored an amendment that exempts libraries and bookstores from section 215 orders and NSLs. A similar amendment passed the House 287-238 in the 2005 PATRIOT Act debate, but was later dropped in conference.

The ACLU, the American Booksellers Association, the American Library Association, and the Campaign for Reader Privacy all support this amendment.

All of these amendments are designed to protect the civil liberties of all Americans and each deserves a full debate on the floor and an up-or-down vote by the Members of this body. Failing to do so is once again failing to provide the adequate time and consideration of this far-reaching legislation.

As a former Federal prosecutor and New Mexico's attorney general, I am familiar with the needs of law enforcement to pursue suspects and a strong supporter of law enforcement. But I also believe that our Constitution must be guarded against encroachment, even in the name of security.

I yield the floor.

Mr. President, this month marks commencement season at our great colleges and universities across Ohio and the Nation. I have had the honor of speaking at a few this year--Owens Community College, Ashland University, Cleveland Marshall College of Law, and Ohio Northern University.

It is a day of achievement and accomplishment, a reaffirmation of why education is a key to our economic prosperity. But it is also a day of anxiety. Graduates are leaving campuses to enter a difficult job market saddled with student debt.

Approximately 2/3 of Ohioans who attend a private or public 4-year college or university graduate with an average of nearly $26,000 in student loan debt. Unfortunately, as student loan debt levels continue to grow, the Nation's hiring climate remains sluggish. This has led to limited employment opportunities for recent graduates; nearly half of the 2009 graduating class is currently unemployed or employed in a position that does not require a college degree.

Such circumstances are leading to undue personal stress and potentially, a lifetime of financial challenges. Far too often, individuals and families are becoming part of the ``sandwich generation'' where families are paying for the cost of their children's education while also taking care of their aging parents.

That is why last year I supported--and the President signed into law, the Health and Education Reconciliation Act, the single largest federal investment in student aid in generations. The law ends wasteful subsidies to private lenders through the Federal Family Education Loan, FFEL, Program. In doing so, we cut out the middleman and loans are now not only originated, but also serviced, by the U.S. Department of Education.

By ending subsidies to private banks, we saved billions of dollars, and used the savings to allow the maximum Pell Grant award to reach a historic level. We made it easier for students to repay loans through the Income-Based Repayment Program. We did this all at no cost to the taxpayer.

For many colleges and universities, the transition from FFEL to the Direct Loan program has been a resounding success as there has been no disruption to borrowers or financial aid administrators.

For those borrowers who are in the middle of the transition period, I, along with my good colleague Senator Franken, am introducing the Student Loan Simplification and Opportunity Act. This legislation, by simplifying loan repayment and reducing the loan amount, benefits college graduates. And this legislation, by removing costly subsidies provided to private lenders, saves 1.8 billion dollars that will be reinvested in the Pell Grant Program, thereby ensuring that other deserving students can afford to attend college.

The Student Loan Simplification and Opportunity Act would allow students with both FFEL loans and Direct Loans to voluntarily transfer their FFEL debt to a Direct Loan servicer over a nine-month period.

By converting loans, the likelihood that a borrower may miss a payment and end up further in debt would decrease. On average, a borrower with multiple loan servicers has a 20 percent higher chance of defaulting on their loan payments. Yet, this program not only simplifies a borrower's loan repayment, it reduces the amount owed. Borrowers who transferred their debt would be rewarded with up to a 2 percent reduction in the principal amount of their FFEL loan.

I am proud to introduce the Student Loan Simplification and Opportunity Act, as this legislation will benefit both borrowers and taxpayers.

Mr. President, as families prepare for Memorial Day festivities, and plan outings this summer, most will be outdoors without adequate sun protection, even if they use sunscreen.

This is because there are currently no rules that sunscreen makers must follow when making claims about the level of protection their products provide.

Currently, sunscreen products are only required to protect against UVB rays, the rays that cause tans and sunburns and the level of protection is documented with a Sun Protection Factor, SPF. Unfortunately, even these numbers can be misleading or worse, inaccurate. Researchers have found that a sunscreen product with a SPF of 30 protects against 98 percent of the sun's UVB rays, while a sunscreen labeled with a SPF of 100 protects against 99 percent of the sun's UVB rays. The larger the SPF number doesn't always result in significantly better protection.

Moreover, sunscreen products are not required to protect against cancer-causing UVA rays. UVA rays actually penetrate deeper into the skin and can cause more damage. Some sunscreens and products containing sun protection claim to protect against these rays, but there are no scientific standards by which to measure their validity.

We have seen the effects that a lack of reliable sun protection can have in the rising rates of melanoma in this country, which has doubled in the past 30 years. This year alone, over 2 million people will be informed that they have a preventable form of skin cancer. My state of Rhode Island is among the top ten for reported melanoma diagnoses.

After years of working with my colleagues to press the Food and Drug Administration to act, in August of 2007, the FDA finally proposed a rule that would require sunscreen labels to disclose the level of UVA protection in a standard format that appears near the sun protection factor rating, and ensure that the SPF rating actually corresponds to a product's protection against UVB rays. This was a step in the right direction. The downside is that nearly 4 years later this proposal has still not been finalized.

For this reason, today I am introducing the Sunscreen Labeling Protection Act, the SUN Act, along with my colleagues, Senators Schumer, Kerry, Leahy, and Franken. This legislation would require the FDA to finalize the sunscreen labeling monograph. If the FDA fails to finalize its proposed monograph of August 27, 2007 within 180 days of enactment of the SUN Act, the monograph, as proposed, would become effective. I look forward to a summer when Americans can finally feel protected from the sun's harmful rays.

Mr. President, I ask unanimous consent that the text of the bill be printed in the Record.