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Tax Reform in the United States by Jon Forman Alfred P. Murrah Professor of Law University of Oklahoma Norman, Oklahoma & ATAX Fellow, UNSW TC Beirne School of Law University of Queensland Brisbane, Australia July 29, 2011

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Overview The Budget Outlook Short-term Long-term Taxes The Current Tax System Recent Tax Reform Proposals 2

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3 U.S. Department of the Treasury, Financial Management Service, A Citizens Guide to the Financial Report of the United States Government (2010), at 2, http://fms.treas.gov/fr/10frusg/10frusg.pdf. http://fms.treas.gov/fr/10frusg/10frusg.pdf

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5 Congressional Budget Office, The Budget and Economic Outlook: Fiscal Years 2011 to 2021 (January 2011), at xv, http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf.http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf

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7 Congressional Budget Office, Four Observations about the Federal Budget (March 7, 2011), at 6 http://www.cbo.gov/ftpdocs/120xx/doc12087/CBO_Presentation_to_NABE_3-7-11.pdf. http://www.cbo.gov/ftpdocs/120xx/doc12087/CBO_Presentation_to_NABE_3-7-11.pdf

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8 http://cboblog.cbo.gov/?p=2371

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Getting back in the black 9 Australian Government, Budget Overview (2011), at 8, http://cache.treasury.gov.au/budget/2011-12/content/download/Overview.pdf. http://cache.treasury.gov.au/budget/2011-12/content/download/Overview.pdf

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10 Australian Government, Budget Overview, Budget Statement 1, at 1-13 (2011), http://cache.treasury.gov.au/budget/2011-12/content/download/bp1.pdf. http://cache.treasury.gov.au/budget/2011-12/content/download/bp1.pdf

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Short-Term: Projected Budget Totals Budget Totals, $billions20112012-2021 Receipts$2,228$39,084 Outlays$3,708$46,055 Deficit$1,480$ 6,971 Budget Totals, % GDP Receipts14.8%19.9% Outlays24.7%23.5% Deficit9.8%3.6% Public Debt, % GDP69.4%75.3% 11 Congressional Budget Office, The Budget and Economic Outlook: Fiscal Years 2011 to 2021 (January 2011), at xii, http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf.http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf

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12 Congressional Budget Office, Four Observations about the Federal Budget (March 7, 2011), at 7, http://www.cbo.gov/ftpdocs/120xx/doc12087/CBO_Presentation_to_NABE_3-7-11.pdf. http://www.cbo.gov/ftpdocs/120xx/doc12087/CBO_Presentation_to_NABE_3-7-11.pdf

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13 Congressional Budget Office, The Budget and Economic Outlook: Fiscal Years 2011 to 2021 (January 2011), at 86, http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf.http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf

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17 Congressional Budget Office, Four Observations about the Federal Budget (March 7, 2011), at 8, http://www.cbo.gov/ftpdocs/120xx/doc12087/CBO_Presentation_to_NABE_3-7-11.pdf. http://www.cbo.gov/ftpdocs/120xx/doc12087/CBO_Presentation_to_NABE_3-7-11.pdf

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18 U.S. Department of the Treasury, Financial Management Service, A Citizens Guide to the Financial Report of the United States Government (2009).

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19 Congressional Budget Office, The Long-Term Budget Outlook (June 2011), at xi, http://www.cbo.gov/doc.cfm?index=12212. http://www.cbo.gov/doc.cfm?index=12212

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Sources of Growth in Federal Spending on Major Mandatory Health Care Programs & Social Security, 2011 to 2035 (% GDP) Congressional Budget Office, The Long-Term Budget Outlook (June 2011), at 11, http://www.cbo.gov/doc.cfm?index=12212. http://www.cbo.gov/doc.cfm?index=12212

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21 Congressional Budget Office, The Long-Term Budget Outlook (June 2011), at 62, http://www.cbo.gov/doc.cfm?index=12212. http://www.cbo.gov/doc.cfm?index=12212

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22 U.S. Department of the Treasury, Financial Management Service, A Citizens Guide to the Financial Report of the United States Government (2010), at iii, http://fms.treas.gov/fr/10frusg/10frusg.pdf. http://fms.treas.gov/fr/10frusg/10frusg.pdf

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23 U.S. Department of the Treasury, Financial Management Service, A Citizens Guide to the Financial Report of the United States Government (2010), at viii, http://fms.treas.gov/fr/10frusg/10frusg.pdf. http://fms.treas.gov/fr/10frusg/10frusg.pdf

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24 U.S. Department of the Treasury, Financial Management Service, A Citizens Guide to the Financial Report of the United States Government (2010), at 12, http://fms.treas.gov/fr/10frusg/10frusg.pdf. http://fms.treas.gov/fr/10frusg/10frusg.pdf

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25 U.S. Department of the Treasury, Financial Management Service, A Citizens Guide to the Financial Report of the United States Government (2010), at 18, http://fms.treas.gov/fr/10frusg/10frusg.pdf. http://fms.treas.gov/fr/10frusg/10frusg.pdf

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26 Congressional Budget Office, The Long-Term Budget Outlook (June 2011), at 80, http://www.cbo.gov/doc.cfm?index=12212. http://www.cbo.gov/doc.cfm?index=12212

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27 Congressional Budget Office, The Long-Term Budget Outlook (June 2011), at 80, http://www.cbo.gov/doc.cfm?index=12212. http://www.cbo.gov/doc.cfm?index=12212

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Taxes Overview of the federal tax system Recent tax reform proposals 28

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29 Joint Committee on Taxation, Present Law and Historical Overview of the Federal Tax System (JCX-1-11), January 18, 2011, www.jct.gov.www.jct.gov Joint Committee on Taxation, Present Law and Historical Overview of the Federal Tax System (JCX-1-11), January 18, 2011, at 70, www.jct.gov.www.jct.gov

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30 Congressional Budget Office, The Long-Term Budget Outlook (June 2011), at 64, http://www.cbo.gov/doc.cfm?index=12212. http://www.cbo.gov/doc.cfm?index=12212

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31 OECD Tax Database, http://www.oecd.org.http://www.oecd.org Tax-to-GDP ratio, 2008

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32 Edward D. Kleinbard, Muddling Through the Budget Crisis (January 6, 2011); OECD Tax Database, http://www.oecd.org.http://www.oecd.org

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33 Joint Committee on Taxation, Present Law and Historical Overview of the Federal Tax System (JCX-1-11), January 18, 2011, at 72, www.jct.gov.www.jct.gov

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34 Congressional Budget Office, Trends in Federal Tax Revenues and Rates (December 2, 2010), at 10, http://finance.senate.gov/imo/media/doc/120210DEtest.pdf.http://finance.senate.gov/imo/media/doc/120210DEtest.pdf

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U.S. Standard Deductions, Personal Exemptions, and Simple Income Tax Thresholds, 2011 Unmarried individuals Heads of household with one child Married couples filing joint returns with two children Standard deduction$5,800$ 8,500$11,600 Personal exemptions$3,700$ 7,400$14,800 Simple income tax threshold $9,500$15,900$26,400 35 Rev. Proc. 2011-12, 2011-2 IRB 297, http://www.irs.gov/pub/irs-irbs/irb11-02.pdf.http://www.irs.gov/pub/irs-irbs/irb11-02.pdf

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Tax Rate Schedules for Various Taxpayers, 2011 36 Tax rate Rate bracket Unmarried individuals Heads of household with one child Married couples filing joint returns with two children 10$0 to $8,500$0 to $12,150$0 to $17,000 15$8,500 to $34,500$12,150 to $46,250$17,000 to $69,000 25$34,500 to $83,600$46,250 to $119,400$69,000 to $139,350 28$83,600 to $174,400$119,400 to $193,350$139,350 to $212,300 33$174,400 to $379,150$193,350 to $379,150$212,300 to $379,150 35Over $379,150

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37 Joint Committee on Taxation, Present Law and Historical Overview of the Federal Tax System (JCX-1-11), January 18, 2011, at 71, www.jct.gov.www.jct.gov

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Proposed Budget Receipts Receipts, $billions20112014 Individual income taxes9981,671 Corporation income taxes279398 Payroll taxes8191,092 Excise taxes7386 Estate and gift taxes1114 Custom duties and other receipts4775 Total receipts2,2283,442 GDP$15,034$17,258 Receipts, % GDP14.8%19.9% 38 Congressional Budget Office, The Budget and Economic Outlook: Fiscal Years 2011 to 2021 (January 2011), at 87, http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf.http://www.cbo.gov/ftpdocs/120xx/doc12039/01-26_FY2011Outlook.pdf

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39 Center on Budget and Policy Priorities, Top Ten Tax Charts (April 14, 2011), http://www.offthechartsblog.org /top-ten-tax-charts/. http://www.offthechartsblog.org /top-ten-tax-charts/

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40 U.S. Payroll Tax Rates: Selected Years 0 2 4 6 8 10 12 14 16 18 20 1940196019802010 Year Percent paid jointly by employee and employer Medicare Social Security

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41 Center on Budget and Policy Priorities, Top Ten Tax Charts (April 14, 2011), http://www.offthechartsblog.org /top-ten-tax-charts/. http://www.offthechartsblog.org /top-ten-tax-charts/

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42 Joint Committee on Taxation, Present Law and Historical Overview of the Federal Tax System (JCX-1-11), January 18, 2011, at 66, www.jct.gov.www.jct.gov

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43 Center on Budget and Policy Priorities, Top Ten Tax Charts (April 14, 2011), http://www.offthecharts blog.org/top-ten-tax- charts/. http://www.offthecharts blog.org/top-ten-tax- charts/

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44 Top 10 Income Tax Expenditures, 2012 (Billions) Health insurance exclusion $184 Mortgage interest deduction 99 401(k) plans 68 Step-up of basis at death 61 Exclusion of net imputed rental income 51 Deductible nonbusiness state and local taxes other than on houses 49 Employer plans 45 Charitable contrib. (other than health & education) 43 Capital gains (except agriculture, timber, iron, coal) 38 Exclusion of interest on tax-exempt bonds 37 2012 Federal Budget, Analytical Perspectives, Chapter 17, Tax Expenditures, Table 17-3, http://www.whitehouse.gov/omb/budget/Analytical_Perspectives. http://www.whitehouse.gov/omb/budget/Analytical_Perspectives

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45 Congressional Budget Office, The Budget and Economic Outlook: Fiscal Years 2011 to 2021 (January 2011), at 97. http://www.cbo.gov/ftpdocs/120xx/doc12039/01- 26_FY2011Outlook.pdf.http://www.cbo.gov/ftpdocs/120xx/doc12039/01- 26_FY2011Outlook.pdf

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46 Office of Management and the Budget, Budget of the United States Government, Fiscal Year 2010 (2009), at 11, http://www.gpoaccess.gov/usbudget/fy10/pdf/fy10-newera.pdf.http://www.gpoaccess.gov/usbudget/fy10/pdf/fy10-newera.pdf

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47 20 Facts About U.S. Inequality that Everyone Should Know, http://stanford.edu/group/scspi/cgi-bin/facts.php. http://stanford.edu/group/scspi/cgi-bin/facts.php Productivity and Real Income

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Rising Poverty 48 U.S. Census Bureau, Income, Poverty, and Health Insurance Coverage in the United States: 2009, at 14, (Current Population Report No. P60-238, September 2010), http://www.census.gov.http://www.census.gov

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49 Congressional Budget Office, Trends in Federal Tax Revenues and Rates (December 2, 2010), at 24, http://finance.senate.gov/imo/media/doc/120210DEtest.pdf.http://finance.senate.gov/imo/media/doc/120210DEtest.pdf

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Rising Inequality 50

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51 Congressional Budget Office, Trends in Federal Tax Revenues and Rates (December 2, 2010), at 15, http://finance.senate.gov/imo/media/doc/120210DEtest.pdf.http://finance.senate.gov/imo/media/doc/120210DEtest.pdf

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Shares of Total Business Returns and Net Income, 1980-2007 1980199020002007 S Corporations Returns4%8%11%12% Net Income1%8%14% Partnerships Returns11%8% 10% Net Income3% 18%23% Sole Proprietorships Returns69%74%72% Net Income17%26%15%10% C Corporations Returns17%11%9%6% Net Income80%62%53% 53 Internal Revenue Service, Statistics of Income, www.irs.gov/taxstats.www.irs.gov/taxstats

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Expired Tax Provisions 2010 First-time homebuyer credit Making work pay credit Build America Bonds Estate and gift tax regime for 2010 54 Joint Committee on Taxation, List of Expiring Federal Tax Provisions, 2010-2020 (JCX-2-11), January 21, 2011, www.jct.gov.www.jct.gov

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Expiring Tax Provisions 2011 Tax credit for research and experimentation expenses Increased AMT exemption amount Increase in expensing to $500,000/$2,000,000 Above-the-line deduction for qualified tuition and related expenses Temporary 2% payroll tax cut 55 Joint Committee on Taxation, List of Expiring Federal Tax Provisions, 2010-2020 (JCX-2-11), January 21, 2011, www.jct.gov.www.jct.gov

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Expiring Tax Provisions 2012 Most 2001 and 2003 tax cuts 35% maximum rate 10% minimum rate $1,000 child tax credit 15% capital gain and dividend rates Expanded earned income tax credit American opportunity tax credit Reduced estate and gift taxes 56 Joint Committee on Taxation, List of Expiring Federal Tax Provisions, 2010-2020 (JCX-2-11), January 21, 2011, www.jct.gov.www.jct.gov

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57 Center on Budget and Policy Priorities, Top Ten Tax Charts (April 14, 2011), http://www.offthechartsblog.org /top-ten-tax-charts/. http://www.offthechartsblog.org /top-ten-tax-charts/

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Recent Tax Reform Proposals Presidents Economic Recovery Advisory Board, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation (August 2010). National Commission on Fiscal Responsibility and Reform, The Moment of Truth (December 2010). Bipartisan Policy Center, Restoring Americas Future (November 2010). Co-Chairs: Pete Domenici & Alice Rivlin 58

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Recent Tax Reform Proposals Bipartisan Tax Fairness and Simplification Act of 2011 (2011). Senators Ron Wyden and Dan Coats Rep. Paul Ryan, The Roadmap Plan (2010). National Taxpayer Advocate, 2010 Annual Report to Congress (December 31, 2010). President Obamas FY2012 Budget 59

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Recent Tax Reform Proposals President Obama, Framework for Shared Prosperity and Shared Fiscal Responsibility (April 13, 2011). See also: Choosing The Nations Fiscal Future (National Research Council & National Academy of Public Administration 2010) The Peterson-Pew Commission on Budget Reform, Red Ink Rising: A Call to Action to Stem the Mounting Federal Debt (2009). 60

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Principles of Sound Tax Policy Simplicity Transparency Neutrality Stability No Retroactivity Broad Bases and Low Rates 61 Tax Foundation, The Principles of Sound Tax Policy, http://www.taxfoundation.org/publications/show/25982.html. http://www.taxfoundation.org/publications/show/25982.html

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62 More Principles of Sound Tax Policy Distribution matters A just distribution of economic resources Intergenerational justice/ Deficits Behavioral consequences matter Encourage work and savings Marriage penalties and bonuses Keep effective rates as low as possible Growth and a stronger dollar

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The need to raise revenue makes it more crucial, not less, to enact structural reforms that focus on efficiency, equity and simplicity in the tax system. William G. Gale & Benjamin H. Harris, Reforming Taxes and Raising Revenue: Part of the Fiscal Solution (May 2011), http://www.brookings.edu/papers/2011/05 _fiscal_solution_gale_harris.aspx. http://www.brookings.edu/papers/2011/05 _fiscal_solution_gale_harris.aspx Income & Payroll Tax; VAT or Energy Tax 63 More Principles of Sound Tax Policy

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64 Tax Base Income Consumption Earnings Wealth

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PERAB: Simplification Options Simplification for Families Consolidate Family Credits and Simplify Eligibility Rules Simplify and Consolidate Tax Incentives for Education 65 PERAB, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation, http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf. http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf

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PERAB: Simplification Options Simplify Savings and Retirement Incentives Consolidate Retirement Accounts Integrate IRA and 401(k)-type Contribution Limits and Disallow Nondeductible Contributions Consolidate Non-Retirement Savings Reduce Retirement Account Leakage Simplify Taxation of Social Security 66 PERAB, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation, http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf. http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf

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PERAB: Simplification Options Simplify Taxation of Capital Gains Harmonize Rules and Tax Rates for Long-Term Capital Gains Simplify Capital Gains Tax Rate Structure Limit or Repeal Section 1031 Like-Kind Exchanges Capital Gains on Principal Residences 67 PERAB, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation, http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf. http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf

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PERAB: Simplification Options Simplify Tax Filing The Simple Return Data Retrieval Raise the Standard Deduction and Reduce the Benefit of Itemized Deductions Simplification for Small Business The Alternative Minimum Tax 68 PERAB, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation, http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf. http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf

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PERAB: Compliance Options Dedicate More Resources to Enforcement and Enhance Enforcement Tools Increase Information Reporting and Source Withholding Clarify the Definition of a Contractor 69 PERAB, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation, http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf. http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf

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PERAB: Corporate Tax Reform Reduce Marginal Corporate Rates Broaden the Corporate Tax Base Eliminate or Reduce Tax Expenditures Eliminate the Domestic Production Deduction Eliminate or Reduce Accelerated Depreciation Eliminate Other Tax Expenditures 70 PERAB, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation, http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf. http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf

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PERAB: International Corporate Tax Issues Option 1: Move to a Territorial System Option 2: Move to a Worldwide System with a Lower Corporate Tax Rate Option 3: Limit or End Deferral with the Current Corporate Tax Rate Option 4: Retain the Current System but Lower the Corporate Tax Rate 71 PERAB, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation, http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf. http://www.whitehouse.gov/sites/default/files/microsites/PERAB_Tax_Reform_Report.pdf

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Presidents Fiscal Commission Co-chairs: Alan Simpson & Erskine Bowles Designed to raise 21% of GDP Individual tax rates of 12, 22, and 28% Eliminate the AMT Eliminate the phase-out of personal exemptions & limits on itemized deductions Eliminate itemized deductions but retain standard deduction & personal exemptions Tax capital gains & dividends as ordinary income 72 The National Commission on Fiscal Responsibility and Reform, The Moment of Truth (December 2010), http://www.fiscalcommission.gov; Tax Policy Center, http://www.taxpolicycenter.org.http://www.fiscalcommission.govhttp://www.taxpolicycenter.org

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Presidents Fiscal Commission Eliminate tax expenditures except: child credit and earned income tax credit mortgage interest deductionreplace with 12% credit; $500,000 mortgage cap cap and phase out the exclusion for employer-sponsored health care charitable giving deductionreplace with 12% credit for contributions over 2% AGI 73 The National Commission on Fiscal Responsibility and Reform, The Moment of Truth (December 2010), http://www.fiscalcommission.gov.http://www.fiscalcommission.gov

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Presidents Fiscal Commission Eliminate tax expenditures except: exclusion of interest on state and municipal bondstax interest only on newly-issued bonds retirement savingsmaintain basic preferences, but consolidate retirement accounts and cap annual tax-preferred contributions at lower of $20,000 or 20 percent of income; expand savers credit defined benefit pensions 74 The National Commission on Fiscal Responsibility and Reform, The Moment of Truth (December 2010), http://www.fiscalcommission.gov.http://www.fiscalcommission.gov

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Presidents Fiscal Commission Eliminate corporate tax expenditures & reduce corporate tax rate to 28% Territorial tax system for active foreign-source income Increase Social Security taxable wage base to 90% of wages, by 2050 Increase the gasoline excise tax on gasoline by 15 per gallon 75 The National Commission on Fiscal Responsibility and Reform, The Moment of Truth (December 2010), http://www.fiscalcommission.gov.http://www.fiscalcommission.gov

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Bipartisan Policy Center Co-Chairs: Pete Domenici & Alice Rivlin one-year payroll tax holiday in 2011 to help stimulate economic recovery individual tax rates: 15% on the 1st $50,000 of taxable income ($100,000 for married couples, 27% on excess eliminate the AMT 76 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Bipartisan Policy Center Eliminate tax expenditures: exclusion from tax of the inside buildup of life insurance and deferred annuities credits and deductions for higher education expenses credit for child & dependent care exclusion from income of benefits under Section 125 cafeteria plans foreign earned income exclusion 77 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Bipartisan Policy Center Exempt the first $1,000 of net long- term gains from taxation (indexed for inflation) tax any additional long-term gains and all qualified dividends as ordinary income include in income unrealized capital gains at death Cap and phase out the exclusion for employer-sponsored health care 78 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Bipartisan Policy Center Eliminate deduction for state and local taxes Replace charitable contributions and mortgage interest deductions with 15% refundable credits Retain medical deduction 79 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Bipartisan Policy Center Replace the standard deduction, personal exemptions, head of household filing status, the child tax credit, and the earned income tax credit with two refundable credits: $1,600 for each dependent child an earnings credit equal to 21.3 percent of the first $20,300 of earnings 80 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Bipartisan Policy Center Tax all Social Security benefits, eliminate the elderly credit & provide 2 new credits: 7.5% of Social Security benefits 15% of the current standard deduction for individuals age 65 or older Increase Social Security taxable wage base to 90% of wages 81 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Bipartisan Policy Center Impose a 6.5% broad-based consumption tax Impose an excise tax 1/ounce on sugar-sweetened beverages Raise the excise tax on alcoholic beverages to 25/ounce Estate tax: $3.5 million exemption and 45% maximum tax rate 82 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Bipartisan Policy Center Corporate taxes reduce the corporate rate to 27% eliminate many tax expenditures: domestic production deduction research and experimentation credit accelerated depreciation for rental housing retain deferral of income for controlled foreign corporations 83 Bipartisan Policy Center, Restoring Americas Future (November 2010), http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf. http://bipartisanpolicy.org/sites/default/files/FINAL%20DRTF%20REPORT%2011.16.10.pdf

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Wyden-Coats Tax Act Like the Tax Reform Act of 1986 Individuals top tax rate of 35% standard deduction of $15,000 ($30,000 for couples) repeal AMT 35% exclusion for capital gains and qualified dividends eliminate lots of tax breaks 84 Senator Ron Wyden, The Bipartisan Tax Fairness and Simplification Act of 2011 (2011), http://wyden.senate.gov/issues/legislation/details/?id=fb5b603a-ed94-48a8-8ff1-c220c1052b3f. http://wyden.senate.gov/issues/legislation/details/?id=fb5b603a-ed94-48a8-8ff1-c220c1052b3f

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Wyden-Coats Tax Act Corporate & business replaces the graduated corporate rate structure with a flat rate of 24% eliminates many business tax breaks allow unlimited expensing of equipment and inventories for small businesses 85 Senator Ron Wyden, The Bipartisan Tax Fairness and Simplification Act of 2011 (2011), http://wyden.senate.gov/issues/legislation/details/?id=fb5b603a-ed94-48a8-8ff1-c220c1052b3f. http://wyden.senate.gov/issues/legislation/details/?id=fb5b603a-ed94-48a8-8ff1-c220c1052b3f

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Rep. Ryans Roadmap Designed to raise 19% of GDP Pay income taxes through existing law, or Through a highly simplified code with virtually no tax breaks 10% on the first $50,000 ($100,000 for couples), 25% on the rest $39,000 standard deduction & personal exemptions for a family of 4 86 Paul Ryan, The Roadmap Plan (2010), http://www.roadmap.republicans.budget.house.gov.http://www.roadmap.republicans.budget.house.gov

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Rep. Ryans Roadmap eliminate the AMT eliminate taxes on interest, capital gains, and dividends Eliminate the estate tax Replace the corporate income tax with a border-adjustable business consumption tax of 8.5% See also House Committee on Budget, The Path to Prosperity (2011) 87 Paul Ryan, The Roadmap Plan (2010), http://www.roadmap.republicans.budget.house.gov.http://www.roadmap.republicans.budget.house.gov

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National Taxpayer Advocate Repeal the AMT Consolidate the family tax provisions Improve other provisions relating to taxation of the family unit Consolidate education savings incentives Consolidate retirement savings incentives 88 National Taxpayer Advocate, 2010 Annual Report to Congress (December 31, 2010), http://www.taxpayeradvocate.irs.gov/Media-Resources/Annual-Report-To-Congress-Full-Report. http://www.taxpayeradvocate.irs.gov/Media-Resources/Annual-Report-To-Congress-Full-Report

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National Taxpayer Advocate Simplify worker classification determinations Eliminate (or reduce incentives for lawmakers to enact tax sunsets Eliminate (or simplify) phase outs Streamline the penalty regime 89 National Taxpayer Advocate, 2010 Annual Report to Congress (December 31, 2010), http://www.taxpayeradvocate.irs.gov/Media-Resources/Annual-Report-To-Congress-Full-Report. http://www.taxpayeradvocate.irs.gov/Media-Resources/Annual-Report-To-Congress-Full-Report

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President Obama: Reform Corporate & Individual Tax Im asking Democrats and Republicans to simplify the system. Get rid of the loopholes. Level the playing field. And use the savings to lower the corporate tax rate for the first time in 25 years without adding to our deficit. It can be done. In fact, the best thing we could do for all Americans is to simplify the individual tax code. This will be a tough job, but members of both parties have expressed interest in doing this, and I am prepared to join them. 90 Text of President Barack Obamas State of the Union Address, http://www.politico.com/news/stories/0111/48181.html. http://www.politico.com/news/stories/0111/48181.html

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President Obamas 2012 Budget Extend the Earned Income Credit Expand the Dependent Care Credit Extend American Opportunity Credit Tax Dividends and Net Long-Term Capital Gains at a 20-Percent Rate for Upper-Income Taxpayers Reduce the Value of Certain Tax Expenditures for Upper-Income 91 U.S. Department of the Treasury, General Explanations of the Administrations Fiscal Year 2012 Revenue Proposals (February 2011), http://www.treasury.gov/.http://www.treasury.gov/

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Enhance and Make Permanent the Research and Experimentation (R&E) Tax Credit Reform & Extend Build America Bonds Reform Treatment of Financial Institutions and Products Reinstate Superfund Taxes Reform U.S. International Tax System 92 President Obamas 2012 Budget U.S. Department of the Treasury, General Explanations of the Administrations Fiscal Year 2012 Revenue Proposals (February 2011), http://www.treasury.gov/.http://www.treasury.gov/

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President Obamas 2012 Budget Eliminate Oil and Gas Preferences Eliminate Coal Preferences Expand Information Reporting Improve Compliance by Businesses Require Greater Electronic Filing Worker Classification Strengthen Tax Administration Expand Penalties 93 U.S. Department of the Treasury, General Explanations of the Administrations Fiscal Year 2012 Revenue Proposals (February 2011), http://www.treasury.gov/.http://www.treasury.gov/

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President Obamas Framework for Shared Prosperity and Shared Fiscal Responsibility 94 The White House, http://www.whitehouse.gov/winning-the-future/fiscal-framework.http://www.whitehouse.gov/winning-the-future/fiscal-framework

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President Obamas Framework: another 12-year estimate: $5.3T Restore high-bracket tax rates to Clinton-era levels: $1T Cut tax-expenditure spending through the tax code: $1T Cut health care spending: $0.5T Cut other mandatory spending by: $0.4T Cut security spending: $0.4T Cut non-security discretionary spending: $0.8T Those reductions will carry with them a reduction in net interest of: $1.2T 95 Brad DeLong, http://delong.typepad.com/sdj/2011/04/the-obama-deficit-reduction- framework.html.http://delong.typepad.com/sdj/2011/04/the-obama-deficit-reduction- framework.html

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President Obamas Framework: Tax Reform $3 of spending cuts and interest savings for every $1 from tax reform that contributes to deficit reduction comprehensive tax reform to produce a system which is fairer, has fewer loopholes, less complexity, and is not rigged in favor of those with lawyers and accountants to game it. 96 The White House, Fact Sheet: The Presidents Framework for Shared Prosperity and Shared Fiscal Responsibility (April 13, 2011), www.whitehouse.gov.www.whitehouse.gov

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President Obamas Framework: Tax Reform Would not extend the Bush tax cuts for the wealthiest Americans Builds on the Fiscal Commissions goal of reducing tax expenditures to both lower rates and lower the deficit Corporate tax eliminate loopholes reduce distortions lower the corporate tax rate 97 The White House, Fact Sheet: The Presidents Framework for Shared Prosperity and Shared Fiscal Responsibility (April 13, 2011), www.whitehouse.gov.www.whitehouse.gov

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Center for American Progress (left-wing plan) 15% income tax rate on couples with income under $100,000 Most loopholes eliminated; 15% credits instead Tax on greenhouse gases & oil import fee of $5 per barrel Financial transactions tax Remove cap on employer payroll tax Estate tax 98 Peter G. Peterson Foundation, 2011 Fiscal Summit: Solutions for Americas Future (May 2011), at 44-46.

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Heritage Foundation (right-wing plan) Single-rate tax income tax on all income sources that are spent on consumption (savings are deductible) Eliminates the estate tax Few deductions of credits Rate set to raise 18.5% of GDP Probably 25-30% 99 Peter G. Peterson Foundation, 2011 Fiscal Summit: Solutions for Americas Future (May 2011), at 57-59.

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Probable Reforms Eliminate the LIFO method of accounting Repeal oil company tax breaks Eliminate graduated corporate rates Eliminate capital gains treatment of carried interest for fund managers Limiting the benefit of itemized deductions to 28 percent 100 Sullivan: What the Debt Limit Debacle Teaches Us About Tax Reform, http://taxprof.typepad.com/taxprof_blog/2011/07/sullivan-what.html http://taxprof.typepad.com/taxprof_blog/2011/07/sullivan-what.html

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Probable Reforms continued Close tax haven loopholes Impose corporate tax on large passthrough entities Extend the depreciable life of corporate aircraft to seven years Repeal the 45-cent-per-gallon tax credit for corn ethanol Repeal the deduction for domestic production activities 101

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Consumption Tax Options Progressive Personal Consumption Tax Subtraction method Value Added Tax Treasury Department proposal for Business Activity Tax (BAT) Credit-method (European) VAT National retail sales tax (RST) 102 Charles E. McClure, Jr., Why the United States Needs a Value Added Tax (2009), http://www.taxadmin.org/Fta/meet/09am/papers/McClure.pdf. http://www.taxadmin.org/Fta/meet/09am/papers/McClure.pdf

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Earlier Tax Reform Proposals Presidents Advisory Panel on Tax Reform, Final Report (2005), http://govinfo.library.unt.edu/taxrefo rmpanel. http://govinfo.library.unt.edu/taxrefo rmpanel U.S. Treasury Department, The President's Tax Proposals to the Congress for Fairness, Growth, and Simplicity (1985). 104

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Earlier Tax Reform Proposals U.S. Treasury Department, Tax Reform for Fairness, Simplicity, and Economic Growth: The Treasury Department Report to the President (3 volumes, 1984). David Bradford and the U.S. Treasury Tax Policy Staff, Blueprints for Tax Reform (Arlington, VA: Tax Analysts. 2nd ed. 1984). 105

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106 Conclusion President needs 60 votes in the Senate and cooperation in the House The whole tax system is in play And will be in play for years Lobbyists will be tripping over each other Change is almost always incremental

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Sources The Presidents Economic Recovery Advisory Board, The Report on Tax Reform Options: Simplification, Compliance, and Corporate Taxation (August 2010), http://www.whitehouse.gov. http://www.whitehouse.gov The National Commission on Fiscal Responsibility and Reform, The Moment of Truth (December 2010), http://www.fiscalcommission.gov. http://www.fiscalcommission.gov The Bipartisan Policy Center Debt Reduction Task Force, Restoring Americas Future: Reviving the Economy, Cutting Spending and Debt, and Creating a Simple, Pro- Growth Tax System (November 2010), http://bipartisanpolicy.org. http://bipartisanpolicy.org 107

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Sources Senators Ron Wyden & Dan Coats, Bipartisan Tax Fairness and Simplification Act of 2011 (2011), http://wyden.senate.gov/issues/legislation/details/?id=f b5b603a-ed94-48a8-8ff1-c220c1052b3f. http://wyden.senate.gov/issues/legislation/details/?id=f b5b603a-ed94-48a8-8ff1-c220c1052b3f Representative Paul Ryan, The Roadmap Plan (2010), http://www.roadmap.republicans.budget.house.gov. http://www.roadmap.republicans.budget.house.gov House Committee on Budget, The Path to Prosperity: Restoring Americas Promise (2011), http://budget.house.gov/UploadedFiles/PathToProsperity FY2012.pdf. http://budget.house.gov/UploadedFiles/PathToProsperity FY2012.pdf Joint Committee on Taxation, Present Law and Historical Overview of the Federal Tax System (JCX-1-11), January 18, 2011, www.jct.gov.www.jct.gov 108

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Sources National Taxpayer Advocate, 2010 Annual Report to Congress (December 31, 2010), http://www.taxpayeradvocate.irs.gov/Media- Resources/Annual-Report-To-Congress-Full-Report. http://www.taxpayeradvocate.irs.gov/Media- Resources/Annual-Report-To-Congress-Full-Report Office of Management and Budget, 2012 Federal Budget, http://www.whitehouse.gov/omb/budget. http://www.whitehouse.gov/omb/budget The White House, Fact Sheet: The Presidents Framework for Shared Prosperity and Shared Fiscal Responsibility (April 13, 2011), www.whitehouse.gov.www.whitehouse.gov Joint Committee on Taxation, List of Expiring Federal Tax Provisions, 2010-2020 (JCX-2-11), January 21, 2011, www.jct.gov. www.jct.gov 109

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Sources The Tax Policy Center, Deficit Reduction Proposals, http://www.taxpolicycenter.org/taxtopics/Deficit- Reduction-Proposals.cfm. http://www.taxpolicycenter.org/taxtopics/Deficit- Reduction-Proposals.cfm Joshua Rosenberg, The U.S. Fiscal Trajectory: Causes and Consequences (January 21, 2011), http://www.abanet.org/tax/MID11/papers/Rosenberg- slidesABA-Boca-Rosenberg.pdf. http://www.abanet.org/tax/MID11/papers/Rosenberg- slidesABA-Boca-Rosenberg.pdf Peter G. Peterson Foundation, 2011 Fiscal Summit: Solutions for Americas Future (May 2011), http://www.pgpf.org/Issues/Fiscal- Outlook/2011/01/20/~/media/88A2881EBE18412EB569 ECFC626DA220. http://www.pgpf.org/Issues/Fiscal- Outlook/2011/01/20/~/media/88A2881EBE18412EB569 ECFC626DA220 110 U.S. Department of the Treasury, General Explanations of the Administrations Fiscal Year 2012 Revenue Proposals (February 2011), http://www.treasury.gov/.http://www.treasury.gov/

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About the Author Jonathan Barry Forman (Jon) is the Alfred P. Murrah Professor of Law at the University of Oklahoma College of Law and the author of Making America Work (Washington, DC: Urban Institute Press, 2006). Jon was the Professor in Residence at the Internal Revenue Service Office of Chief Counsel, Washington, DC, for the 2009-2010 academic year. Jon can be reached at jforman@ou.edu, 405-325-4779, www.law.ou.edu/faculty/forman.shtml.jforman@ou.edu www.law.ou.edu/faculty/forman.shtml 111