One has to wonder if Congressional dysfunction has reached a breaking point.

Imagine legislation that was drafted with the help of presidential son-in-law Jared Kushner and, unsurprisingly, supported by President Trump himself. Imagine that this same bill is supported by such stalwarts of “The Resistance” as the Urban League and the Equal Justice Initiative, and also backed by prominent conservative groups such as FreedomWorks and the Faith and Freedom Coalition. The Koch brothers and Grover Norquist are advocates, and so is liberal commentator Vann Jones. In fact, imagine a bill so bipartisan that it passed even this deeply divided House on a 360–59 vote.

That legislation would be the “FIRST STEP Act,” a prison-reform bill. And, this being Washington in 2018, it is almost certainly not going to become law. Indeed, it looks doubtful that the Senate will even vote on it.

The FIRST STEP Act is hardly radical. It doesn’t reduce inmate sentences or otherwise deal with the intensely punitive approach to justice that has given the United States the world’s largest per capita prison population. Nor does it remedy the ongoing racial issues that continue to infect our criminal-justice system.

Instead, it would make a number of extremely modest humanitarian reforms to the way we treat prisoners. For example, it would make female health products more available in federal prisons and all but end the practice of shackling female inmates during childbirth. It would try to keep inmate families together by expanding visits, phone privileges teleconferencing, and opportunities to transfer to prisons closer to home. It would increase mental-health and substance-abuse treatment for inmates.

It would also provide a modest $250 million over five years for new inmate-education and -rehabilitation programs, and establish incentives (including time credits) for prisoners to participate. Prisons would also be required to conduct “risk assessments” of soon-to-be-released inmates and to tailor programs to meet these inmates’ needs.

Over the long run, most experts believe the legislation would save money. For example, studies have shown that every dollar spent providing needed mental-health and substance-abuse treatment to inmates ultimately saves taxpayers $1.27 to $5.47 in reduced crime and incarceration costs. One should always be skeptical of claims that government spending will save money, but this initiative clearly passes the common-sense test. Similarly, keeping families together is likely to reduce future welfare costs as well as crime. And since nearly all prisoners will eventually be released, programs to reduce recidivism are also likely to prove cost-effective.

So why is such a modest and humane bill almost certain to die?

In part, the FIRST STEP Act is a victim of the infighting and turf protection that helps explain Congress’s 18 percent favorability rating. Senator Chuck Grassley (R., Iowa), who as chairman of the Judiciary Committee has jurisdiction over the bill, favors a much more expansive bill, the Sentencing Reform and Corrections Act, which he is co-sponsoring with Sen. Dick Durbin, the Senate’s No. 2 Democrat. Grassley and Durbin are insisting that the FIRST STEP Act be rolled into their bill. But their legislation, which is indeed worthwhile, is being blocked by Senate majority leader Mitch McConnell because the White House won’t sign off on some provisions. In the meantime, prison reform goes nowhere.

An even more significant roadblock is being provided by Senator Tom Cotton (R., Ark.), who opposes nearly all efforts at criminal-justice reform. Senator Cotton, one of the few Americans who believe we have an underincarceration problem, in his words, has mounted an effective guerrilla campaign to undermine the bill’s support on the right. For example, Cotton is reportedly pushing law-enforcement groups to oppose the bill. His efforts have been drawing fruit. Recently the Federal Law Enforcement Officers Association withdrew its endorsement of the bill after being pressured by Cotton’s office. Republicans, always fearful of being called “soft on crime,” will find it difficult to buck law enforcement.

Complaints about congressional gridlock are often exaggerated. The Founders intended legislating to be slow, deliberate, and challenging. But when even commonsense legislation with broad bipartisan support can’t so much as get a vote, one has to wonder if congressional dysfunction has reached a breaking point.

There is one possible way that this innovative bill could make it through Congress and onto the President’s desk. If determined members of the Senate refuse to vote in the upcoming confirmation of the candidate to fill the current Supreme Court vacancy there may be enough pressure to move the opposition out of the way.  Senators Cotton and McConnell both have vested interest in seeing a smooth confirmation hearing, and stand to lose critical local support in their home states and from the administration if their actions cause unnecessary delays or, worse, derail the confirmation entirely.

It’s a weak foundation  for prison reform advocates to stand on, but uncertain ground is better than having no place to stand at all.