I 
119TH CONGRESS 
1ST SESSION H. R. 2935 
To establish a Commission on the Federal Regulation of Cannabis to study 
a prompt and plausible pathway to the Federal regulation of cannabis, 
and for other purposes. 
IN THE HOUSE OF REPRESENTATIVES 
APRIL 17, 2025 
Mr. JOYCE of Ohio (for himself, Mr. JEFFRIES, and Mr. MILLER of Ohio) 
introduced the following bill; which was referred to the Committee on En-
ergy and Commerce, and in addition to the Committees on the Judiciary, 
Ways and Means, Agriculture, and Financial Services, for a period to be 
subsequently determined by the Speaker, in each case for consideration 
of such provisions as fall within the jurisdiction of the committee con-
cerned 
A BILL 
To establish a Commission on the Federal Regulation of 
Cannabis to study a prompt and plausible pathway to 
the Federal regulation of cannabis, and for other pur-
poses. 
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE. 
This Act may be cited as the ‘‘Preparing Regulators 
Effectively for a Post-prohibition Adult-use Regulated En-
vironment Act of 2025’’ or the ‘‘PREPARE Act of 2025’’. 
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SEC. 2. FINDINGS. 
Congress finds the following: 
(1) Cannabis was federally legal in the United 
States until 1937. 
(2) Cannabis was federally prohibited to codify 
discriminatory practices against minority commu-
nities. 
(3) Medical cannabis prohibition was estab-
lished despite objection from the American Medical 
Association. 
(4) 38 States and the District of Columbia have 
legalized cannabis for medical purposes. 
(5) 21 States and the District of Columbia have 
legalized cannabis for adult use. 
(6) Despite the Federal Government collecting 
revenue from the sale of cannabis, individuals are 
still criminally persecuted for its use. 
(7) Cannabis research, including research on 
medical uses, product safety, and impairment stand-
ards, is severely hindered and made nearly impos-
sible by its schedule 1 classification. 
(8) Cannabis should remain an adult product 
aside from the physician prescribed treatment of mi-
nors. 
(9) Cannabis has proven medically beneficial for 
patients suffering from pain, cancer, post-traumatic 
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stress disorder, seizure disorders, and multiple scle-
rosis, among other diseases. 
(10) Since 2003, the United States Government 
by way of the Department of Health and Human 
Services has held a patent for medical cannabis as 
an antioxidant and neuroprotectant. 
(11) While the United States remains trapped 
in antiquated cannabis regulations, other nations 
and scientific competitors, including the United 
Kingdom, Canada, South Korea, Germany, and 
Israel have modified their laws to allow for varying 
degrees of cannabis legality and medical research. 
SEC. 3. PURPOSE. 
The President and Congress shall prepare the Fed-
eral Government for an inevitable and prompt end to Fed-
eral marihuana prohibition by establishing a commission 
to advise on the development of a regulatory framework 
with respect to marihuana regulation, including account-
ing for the different characteristics of communities, agen-
cies, and industries impacted by Federal marihuana prohi-
bition. Such regulatory framework shall be modeled after 
Federal and State regulatory frameworks with respect to 
alcohol. 
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SEC. 4. COMMISSION ESTABLISHMENT AND MEMBERSHIP. 
(a) ESTABLISHMENT.—Not later than 30 days after 
the date of the enactment of this Act, the Attorney Gen-
eral shall establish a commission to be known as the 
‘‘Commission on the Federal Regulation of Cannabis’’ (in 
this Act referred to as the ‘‘Commission’’) to study a plau-
sible and prompt pathway to cannabis regulation. 
(b) DUTIES OF COMMISSION.— 
(1) PROPOSAL
OF
MEASURES.—The Commis-
sion shall propose measures to alleviate and rem-
edy— 
(A) the impact of cannabis criminalization, 
particularly on minority, low income, and vet-
eran communities; 
(B) the lack of access to the financial serv-
ice sector for cannabis entrepreneurs and their 
affiliated industries; 
(C) the lack of access to cannabis related 
research, including research on medical uses 
and the effects of impairment; 
(D) the lack of access to medical cannabis 
and research, particularly with respect to Fed-
eral agencies; 
(E) the lack of medical cannabis training 
at publicly funded medical training centers; 
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(F) the lack of consistent regulations for 
cannabis product and safety, use, and labeling 
requirements, including requirements to protect 
youth and reduce harms to youth; 
(G) the lack of efficient cannabis revenue 
reporting and collecting, including efficient and 
tenable Federal revenue frameworks; 
(H) the lack of guidance for cannabis crop 
production, sale, intrastate, interstate, and 
international trade; 
(I) the lack of guidance regarding the suc-
cessful coexistence of individual hemp and can-
nabis industries, including prevention of cross 
pollination of cannabis and hemp products; and 
(J) any other barriers to Federal cannabis 
legalization identified by the Commission. 
(2) PUBLIC COMMENT; PUBLIC WITNESS; RE-
PORTS.— 
(A) COMMENT PERIOD.—Not later than 60 
days after the date of the enactment of this 
Act, the Commission shall solicit comment with 
respect to the regulation of cannabis from in-
dustry stakeholders, criminal justice reform ad-
vocates, substance use advocates, healthcare ex-
perts, State cannabis regulators, the Depart-
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ment of Justice of each State or Tribal govern-
ment, and the public. 
(B) PUBLIC WITNESS HEARING.— 
(i) IN GENERAL.—Not later than 180 
days after the date of the enactment of 
this Act, the Commission shall convene a 
witness hearings and solicit written or 
verbal testimony from participants in the 
cannabis industry. Such hearings shall in-
clude— 
(I) not less than two unique indi-
viduals or entities, who are not em-
ployed by the Federal Government, 
and represent a State legal operation 
that is licensed by a single State to 
sell, manufacture, produce, possess, 
distribute, administer, or deliver can-
nabis; 
(II) not less than two unique in-
dividuals or entities, who are not em-
ployed by the Federal Government, 
and represent a State legal operation 
with a multi-State presence that is li-
censed by such States to sell, manu-
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facture, produce, possess, distribute, 
administer, or deliver cannabis; 
(III) an individual who was con-
victed and incarcerated by the Federal 
Government for a non-violent offense 
with respect to cannabis; and 
(IV) an individual who was con-
victed and incarcerated by a State for 
a non-violent offense with respect to 
cannabis. 
(ii) RULE OF CONSTRUCTION.—Noth-
ing in this section shall be construed to 
limit the Commission’s authority to include 
additional participants at the public wit-
ness hearing. if the participants referred to 
under clause (i) are included. 
(iii) PUBLIC AVAILABILITY.—Written 
and verbal testimony under clause (i) shall 
be made publicly available in the final rec-
ommendations published under paragraph 
(5). 
(3) 
INITIAL
REPORT
AND
RECOMMENDA-
TIONS.—Not later than 120 days after the date of 
the enactment of this Act, the Commission shall 
publish initial findings and recommendations pursu-
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ant to subsection (b), including an identification of 
barriers to and suggestions for regulating cannabis 
in a way that is similar to the regulation of alcohol 
with respect to the rights of States, Tribal Govern-
ments, and the Federal Government, on the internet 
website of the Department of Justice. 
(4) ADDITIONAL PUBLIC COMMENT PERIOD.— 
Beginning 120 days after the date of the enactment 
of this Act, the Commission shall solicit additional 
public comment from stakeholders identified pursu-
ant to paragraph (2)(A) with respect to the initial 
recommendations published pursuant to paragraph 
(3). 
(5) FINAL RECOMMENDATIONS.—Not later than 
one year after the date of the enactment of this Act, 
the Commission shall publish a report including 
findings and recommendations pursuant to sub-
section (b), including an identification of barriers to 
and suggestions for regulating cannabis in a way 
that is similar to the regulation of alcohol, on the 
internet website of the Department of Justice. 
(c) MEMBERSHIP.—The Commission shall be com-
posed of the following members: 
(1) The majority leader of the Senate shall ap-
point one member who is not employed by the Fed-
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eral Government and was formerly incarcerated for 
a non-violent crime with respect to cannabis use or 
possession. 
(2) The minority leader of the Senate shall ap-
point one member who is not employed by the Fed-
eral Government and is an expert in substance abuse 
prevention. 
(3) The minority leader of the House of Rep-
resentatives shall appoint one member who is not 
employed by the Federal Government and is an ex-
pert in the history of cannabis criminalization and 
the impact of criminalization on various commu-
nities, particularly minorities, medical patients, and 
veterans. 
(4) The majority leader of the House of Rep-
resentatives shall appoint one member who is not 
employed by the Federal Government and who is 
medically licensed with substantial knowledge and 
demonstrated research into cannabis use and med-
ical treatments. 
(5) The Attorney General shall appoint one 
member from the Department of Justice, who is an 
expert in the history of cannabis criminalization and 
the impact of criminalization on various commu-
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nities, particularly minorities, medical patients, and 
veterans. 
(6) The Director of the Bureau of Alcohol, To-
bacco, Firearms and Explosives. 
(7) The Director of the National Highway Traf-
fic Safety Administration. 
(8) The Secretary of Education shall appoint 
one member from the Department of Education who 
is an expert in prevention of youth access to alcohol 
and tobacco. 
(9) The Director of Occupational Safety and 
Health Administration. 
(10) The Secretary of Agriculture shall appoint 
one member from the Department of Agriculture 
who is an expert on cannabis and hemp cultivation. 
(11) The Commissioner of the Food and Drug 
Administration. 
(12) The Director of the Alcohol and Tobacco 
Tax and Trade Bureau. 
(13) The Commissioner of the Internal Revenue 
Service. 
(14) The United States Trade Representative. 
(15) The Secretary of Commerce shall appoint 
one member from the Department of Commerce who 
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is an expert on regulated goods in interstate com-
merce. 
(16) The Secretary of Health and Human Serv-
ices shall appoint one member from the Department 
of Health and Human Services who is an expert on 
medical cannabis use and access. 
(17) The Director of the National Institutes of 
Health. 
(18) The Secretary of the Veterans Affairs shall 
appoint one member from the Department of Vet-
erans Affairs with knowledge of treatments for pain 
management and post-traumatic stress disorder and 
for providing patients with affordable treatment op-
tions. 
(19) The Deputy Secretary of the Interior. 
(20) The Administrator of the Small Business 
Administration shall appoint one member from the 
Small Business Administration who is an expert in 
creating industry access for historically marginalized 
communities. 
(21) The Director of the National Institute of 
Standards and Technology. 
(22) The Secretary of Housing and Urban De-
velopment. 
(23) The Secretary of Labor. 
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(24) The Secretary of the Treasury. 
(25) The Director of the Office of National 
Drug Control Policy. 
(26) The Director of the Office of Minority 
Health. 
(27) The Director of Indian Health Service. 
(28) One representative from a trade organiza-
tion or other non-profit entity with members from 
multiple, highly regulated adult goods and consumer 
package goods, appointed by the Attorney General. 
(29) Two representatives who have worked on a 
State cannabis control commission to develop two 
successful, separate, and unique State-level regu-
latory systems, appointed by the Attorney General. 
(d) LEADERSHIP.— 
(1) CHAIRPERSON.—The Chairperson shall be 
elected by the members of the Commission at the 
first meeting of the Commission. 
(2) SECRETARY.—The Secretary shall be elect-
ed by the members of the Commission at the first 
meeting of the Commission. 
(3) VACANCIES.—A vacancy in the Chairperson 
or Secretary position shall be filled in the manner in 
which the original appointment was made by the re-
maining members of the Commission. 
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(e) MEMBERSHIP BY POLITICAL PARTY.—If after the 
Commission is appointed there is a partisan imbalance of 
Commission members, the congressional leaders of the po-
litical party with fewer members on the Commission shall 
jointly name additional members to create partisan parity 
on the Commission. 
(f) APPOINTMENTS; REMOVALS; VACANCIES.— 
(1) TIMING OF APPOINTMENTS.—Each initial 
appointment to the Commission shall be made no 
later than 30 days after the Commission is estab-
lished. If any appointing authorities fail to appoint 
a member to the Commission, their appointment 
shall be made by the Attorney General. 
(2) REMOVAL.—A member of the Commission 
may be removed from the Commission at any time 
by the appointing authority should the member fail 
to meet Commission attendance requirement pursu-
ant to subsection (g). 
(3) VACANCIES.—A vacancy in the Commission 
shall be filled in the manner in which the original 
appointment was made prior to the date of the Com-
mission’s next meeting. 
(g) MEETING REQUIREMENTS.— 
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(1) FIRST
MEETING.—The Commission shall 
have its first meeting no later than 90 days after the 
date of the enactment of this Act. 
(2) QUARTERLY MEETINGS.—The Commission 
shall meet quarterly. In addition to all quarterly 
meetings, the Commission shall meet at other times 
at the call of the Chairperson or as determined by 
a majority of Commission members. 
(3) QUORUM; RULE FOR VOTING ON FINAL AC-
TIONS.—A majority of the members of the Commis-
sion constitute a quorum, and an affirmative vote of 
a majority of the members present is required to 
issue recommendations. 
(4) ATTENDANCE BY MEMBERS.—Members are 
expected to attend all Commission meetings. In the 
case of an absence, members are expected to report 
to the Chairperson prior to the meeting and allow-
ance may be made for an absent member to partici-
pate remotely. Members are responsible for fulfilling 
prior commitments, regardless of attendance status. 
If a member is absent two times in a given year, he 
or she will be reviewed by the Chairperson and ap-
pointing authority and further action will be consid-
ered, including removal and replacement on the 
Commission. 
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(h) MINUTES.—Minutes shall be taken at each meet-
ing by the Secretary, or in that individual’s absence, the 
Chairperson shall select another Commission member to 
take minutes during that absence. 
(i) ADMINISTRATIVE REQUIREMENTS.—The Attorney 
General shall provide staff and administrative support to 
the Commission. All entities of the United States Govern-
ment shall provide information that is otherwise a public 
record at the request of the Commission. 
(j) NO RULEMAKING AUTHORITY.—The Commission 
shall not have rulemaking authority. 
(k) PROHIBITION OF COMPENSATION.— 
(1) FEDERAL
EMPLOYEES.—Members of the 
Commission who are full-time officers or employees 
of the United States may not receive additional pay, 
allowances, or benefits by reason of their service on 
the Commission. 
(2) OTHER MEMBERS.—Members of the Com-
mission who are not full-time officers or employees 
of the United States may not receive additional pay, 
allowances, or benefits by reason of their service on 
the Commission. 
(l) DEFINITIONS.—In this Act: 
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(1) CANNABIS.—The term ‘‘cannabis’’ has the 
meaning given the term ‘‘marihuana’’ in section 102 
of the Controlled Substances Act (21 U.S.C. 802). 
(2) STATE.—The term ‘‘State’’ includes the 
District of Columbia, the Commonwealth of Puerto 
Rico, and any territory or possession of the United 
States. 
(3) STATE CANNABIS CONTROL COMMISSION.— 
The term ‘‘State cannabis control commission’’ 
means any State commission, bureau, board, depart-
ment, office, agency, division, or authority respon-
sible for the regulation of the State’s legal medical 
and recreational cannabis program. 
(4) TRIBAL GOVERNMENT.—The term ‘‘Tribal 
government’’ means the recognized governing body 
of any Indian or Alaska Native tribe, band, nation, 
pueblo, village, community, component band, or com-
ponent reservation, individually identified (including 
parenthetically) in the list published most recently as 
of the date of enactment of this paragraph pursuant 
to section 104 of the Federally Recognized Indian 
Tribe List Act of 1994 (25 U.S.C. 5131). 
Æ 
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