[Senate Report 116-246]
[From the U.S. Government Publishing Office]


                                                       Calendar No. 508
                                                       

116th Congress   }                                            {  Report
                                SENATE                          
2d Session       }                                            {  116-246
_______________________________________________________________________

                                     

                                                       

            ENSURING HEALTH SAFETY IN THE SKIES ACT OF 2020

                               __________

                              R E P O R T

                                 of the

           COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION

                                   on

                                S. 3681




                 August 6, 2020.--Ordered to be printed
       SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
                     one hundred sixteenth congress
                             second session

                 ROGER F. WICKER, Mississippi, Chairman
JOHN THUNE, South Dakota             MARIA CANTWELL, Washington
ROY BLUNT, Missouri                  AMY KLOBUCHAR, Minnesota
TED CRUZ, Texas                      RICHARD BLUMENTHAL, Connecticut
DEB FISCHER, Nebraska                BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas                  EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska                 TOM UDALL, New Mexico
CORY GARDNER, Colorado               GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee          TAMMY BALDWIN, Wisconsin
SHELLEY MOORE CAPITO, West Virginia  TAMMY DUCKWORTH, Illinois
MIKE LEE, Utah                       JON TESTER, Montana
RON JOHNSON, Wisconsin               KYRSTEN SINEMA, Arizona
TODD C. YOUNG, Indiana               JACKY ROSEN, Nevada
RICK SCOTT, Florida
                       John Keast, Staff Director
               David Strickland, Minority Staff Director
               
               
               
               
               



                                                       Calendar No. 508
                                                       
                                                       
116th Congress  }                                            {   Report
                                 SENATE
 2d Session     }                                            {  116-246

======================================================================



 
            ENSURING HEALTH SAFETY IN THE SKIES ACT OF 2020

                                _______
                                

                 August 6, 2020.--Ordered to be printed

                                _______
                                

       Mr. Wicker, from the Committee on Commerce, Science, and 
                Transportation, submitted the following

                              R E P O R T

                         [To accompany S. 3681]

      [Including cost estimate of the Congressional Budget Office]

    The Committee on Commerce, Science, and Transportation, to 
which was referred the bill (S. 3681) to require a joint task 
force on the operation of air travel during and after the 
COVID-19 pandemic, and for other purposes, having considered 
the same, reports favorably thereon with an amendment (in the 
nature of a substitute) and an amendment to the title and 
recommends that the bill (as amended) do pass.

                          PURPOSE OF THE BILL

    The purpose of this legislation is to direct the Department 
of Health and Human Services, Department of Homeland Security, 
and Department of Transportation to establish a joint task 
force and advisory committee to examine issues arising from 
continued air travel during the COVID-19 pandemic.

                          Background and Needs

    S. 3681, the Ensuring Health Safety in the Skies Act of 
2020, directs the Department of Health and Human Services, 
Department of Homeland Security, and Department of 
Transportation to establish a joint task force to examine 
issues arising from continued air travel during the coronavirus 
pandemic. Specifically, the joint task force would be 
responsible for developing recommended requirements, plans, and 
guidelines to address logistical, health, safety, and security 
issues, and the resumption of full operations at airports and 
increased passenger air travel after the current emergency 
ends.
    As sections of the United States begin phased reopening, 
the Centers for Disease Control and Prevention (CDC) continue 
to advise the public that travel increases the probability of 
contracting and spreading the novel coronavirus, which causes 
COVID-19.\1\ Air travel requires passengers to gather in 
relatively close proximity in security lines, airport 
terminals, and onboard the aircraft. These situations can bring 
passengers into close contact with other people and frequently 
touched surfaces. According to CDC, most viruses and other 
germs do not spread easily on aircraft, because of how air 
circulates and is filtered on aircraft.\2\ However, social 
distancing is difficult on full aircraft.\3\ This may increase 
risk for exposure to the virus that causes COVID-19.\4\
---------------------------------------------------------------------------
    \1\Centers for Disease Control and Prevention, ``Travel: Frequently 
Asked Questions and Answers'' (https://www.cdc.gov/coronavirus/2019-
ncov/travelers/faqs.html) (accessed Jul. 2, 2020).
    \2\Ibid.
    \3\Ibid.
    \4\Ibid.
---------------------------------------------------------------------------
    The COVID-19 pandemic has presented a substantial challenge 
to the aviation industry. Passenger airlines are suffering from 
government-imposed travel restrictions, the elimination of most 
nonessential business travel, and overall lack of consumer 
demand.\5\ Compared to 2019, the Transportation Security 
Administration's Checkpoint Traveler Throughput tracker 
indicated that the number of air travelers was down 95 percent 
in April 2020 and 90 percent in May 2020.\6\ As a result, 
airlines are losing revenue while continuing to draw down cash 
reserves. Based on past experience, many industry experts 
anticipate that it will take years for airlines to recover from 
the pandemic.\7\ Cargo airlines are also being impacted by the 
COVID-19 pandemic. Air cargo is often transported under the 
cabin on passenger aircraft, and complications in the supply 
chain have arisen due to the decrease in passenger flights.
---------------------------------------------------------------------------
    \5\Rachel Y. Tang, ``COVID-19 and Funding Civil Aviation,'' 
Congressional Research Service, Mar. 23, 2020 (https://www.crs.gov/
Reports/IN11267?source=IAP) (accessed Jul. 2, 2020).
    \6\``Impact of COVID-19; Data Updates,'' Airlines for America, Apr. 
30, 2020 (https://www.airlines.org/dataset/impact-of-covid19-data-
updates/) (accessed Jul. 2, 2020).
    \7\Brianna Gurciullo, ``Absent Vaccine, Airline Industry May Be 
Gutted for Years,'' Politico, Apr. 27, 2020 (https://www.politico.com/
news/2020/04/27/vaccine-airline-coronavirus-212551) (accessed Jul. 9, 
2020).
---------------------------------------------------------------------------
    Airlines are not the only sector of the aviation industry 
impacted, as airports within the United States have faced 
numerous financial, logistical, and safety challenges. Most 
airports that have passenger airline service have implemented 
new health or cleaning procedures in response to COVID-19. 
Businesses supporting those airports have lost revenue, which 
has resulted in thousands of lost jobs at these airports.\8\ 
Many airport infrastructure and maintenance programs have also 
been deferred. Airports often serve as economic drivers in 
their communities, and the lack of activity at an airport can 
likely have rippling effects on local economies. The airline, 
airport, manufacturing, and other aviation sectors also face 
challenges in protecting the aviation workforce.
---------------------------------------------------------------------------
    \8\Sam Mintz, ``Aviation's New Normal,'' Politico, Apr. 24, 2020 
(https://www.politico.com/newsletters/morning-transportation/2020/04/
24/aviations-new-normal-787113) (accessed Jul. 9, 2020).
---------------------------------------------------------------------------
    For passenger flights that continue to operate, airlines 
have faced challenges in providing flight attendants, pilots, 
and their other workers with appropriate resources to protect 
themselves from possibly infected passengers. Some airline 
employees have raised concerns with the frequency and 
thoroughness of aircraft cleaning, availability of personal 
protective equipment (PPE), and availability of sick leave 
should an employee fall ill. Most airlines have begun to 
require passengers to wear masks when flying in an effort to 
reduce the spread of COVID-19 and have implemented modified 
boarding processes and seating arrangements.\9\ There are 
similar concerns for airport workers regarding facility 
cleaning, PPE availability, and provision of sick leave.
---------------------------------------------------------------------------
    \9\Brianna Gurciullo, ``Absent Vaccine, Airline Industry May Be 
Gutted for Years,'' Politico, Apr. 27, 2020 (https://www.politico.com/
news/2020/04/27/vaccine-airline-coronavirus-212551) (accessed Jul. 2, 
2020).
---------------------------------------------------------------------------

                         SUMMARY OF PROVISIONS

    S. 3681 would do the following:
   Require the establishment of a joint task force that 
        includes representatives from the Department of 
        Transportation, the Department of Homeland Security, 
        the Department of Health and Human Services, the 
        Federal Aviation Administration, the Transportation 
        Security Administration, U.S. Customs and Border 
        Protection, the Centers for Disease Control and 
        Prevention, the Occupational Safety and Health 
        Administration, the National Institute for Occupational 
        Safety and Health, the Pipeline and Hazardous Materials 
        Safety Administration, the Department of State, and the 
        Environmental Protection Agency. The joint task force 
        would:
     Develop recommended requirements, plans, and 
            guidelines to address the health, safety, security, 
            and logistical issues related to continuation of 
            air travel during and after the COVID-19 health 
            emergency.
     Consult, as practicable, with relevant 
            international entities and operators, including the 
            International Civil Aviation Organization.
   Require the Secretary of Transportation to chair the 
        joint task force and the Secretary of Health and Human 
        Services to serve as the vice-chair.
   Require the joint task force to consider the 
        consensus recommendations of the advisory committee, 
        conduct cost-benefit evaluations, consider funding 
        constraints, and use risk-based decision-making when 
        making its recommendations.
   Require the joint task force to brief Congress on 
        initial recommendations to ensure safe air travel 
        before the COVID-19 pandemic ends and during the 
        immediate period after the disease subsides, as soon as 
        practicable, but not later than 6 months after 
        establishment. Within 18 months, the task force would 
        submit a final report to Congress detailing all of its 
        recommendations.
   Require the Secretary of Transportation, in 
        consultation with the Secretary of Homeland Security 
        and the Secretary of Health and Human Services, to 
        establish an advisory committee with representatives 
        from airports, airlines, aircraft manufacturers, labor 
        unions representing aviation workers, public health 
        experts, consumer and passenger rights organizations, 
        privacy and civil liberty organizations, the 
        manufacturers of passenger screening technologies, and 
        trade associations representing air carrier and airport 
        operators.

                          LEGISLATIVE HISTORY

    S. 3681 was introduced on May 11, 2020, by Senator Markey 
(for himself and Senator Blumenthal) and was referred to the 
Committee on Commerce, Science, and Transportation of the 
Senate. On May 20, 2020, the Committee met in open Executive 
Session and, by voice vote, ordered S. 3681 reported favorably 
with an amendment (in the nature of a substitute).

Hearing

    On May 6, 2020, the Committee held a hearing entitled ``The 
State of the Aviation Industry: Examining the Impact of the 
COVID-19 Pandemic.'' This hearing provided an update on the 
status of the aviation industry, challenges resulting from the 
COVID-19 pandemic, and oversight of the implementation of the 
Coronavirus Aid, Relief, and Economic Security (CARES) Act.\10\ 
The witnesses included representatives of the Aerospace 
Industries Association, Airlines for America, American 
Association of Airport Executives, and the University of 
Washington.
---------------------------------------------------------------------------
    \10\Public Law 116-136.
---------------------------------------------------------------------------

                            ESTIMATED COSTS

    In accordance with paragraph 11(a) of rule XXVI of the 
Standing Rules of the Senate and section 403 of the 
Congressional Budget Act of 1974, the Committee provides the 
following cost estimate, prepared by the Congressional Budget 
Office:




    S. 3681 would require the Departments of Health and Human 
Services, Homeland Security, and Transportation to establish a 
joint task force on air travel during and after the COVID-19 
public health emergency. The task force would consist of 
representatives from various federal agencies, and would 
develop policy recommendations to address issues related to 
airport and air carrier operations during and after the 
coronavirus pandemic.
    The bill also would require those departments to establish 
a joint federal advisory committee that would assist the task 
force with developing recommendations. Committee members would 
include public health experts, representatives of industry 
groups and related businesses, and other interested parties.
    The task force would be required to report to the Congress 
within 18 months of enactment, and the task force and advisory 
committee would terminate 30 days after that report.
    Based on the cost of similar activities, CBO estimates that 
implementing S. 3681 would cost $1 million over the 2020-2025 
period; such spending would be subject to the availability of 
appropriated funds.
    The CBO staff contact for this estimate is Aaron Krupkin. 
The estimate was reviewed by H. Samuel Papenfuss, Deputy 
Director of Budget Analysis.

                      REGULATORY IMPACT STATEMENT

    In accordance with paragraph 11(b) of rule XXVI of the 
Standing Rules of the Senate, the Committee provides the 
following evaluation of the regulatory impact of the 
legislation, as reported:

Number of Persons Covered

    S. 3681, as amended, would require a joint task force and 
advisory committee to examine issues arising from continued air 
travel during the COVID-19 pandemic. The joint task force would 
be required to make recommendations for any actions needed to 
ensure the continued safe operation of the air transportation 
system, but does not authorize any new regulations upon any 
individuals or businesses.

Economic Impact

    S. 3681, as amended, is not expected to have a negative 
impact on the Nation's economy.

Privacy

    S. 3681, as amended, is not expected to impact the personal 
privacy of individuals.

Paperwork

    S. 3681, as amended, would not create increases in 
paperwork burdens other than requiring the task force to 
produce a final report to Congress of its recommendations.

                   CONGRESSIONALLY DIRECTED SPENDING

    In compliance with paragraph 4(b) of rule XLIV of the 
Standing Rules of the Senate, the Committee provides that no 
provisions contained in the bill, as reported, meet the 
definition of congressionally directed spending items under the 
rule.

                      SECTION-BY-SECTION ANALYSIS

Section 1. Short title.

    This section would provide that the bill may be cited as 
the ``Ensuring Health Safety in the Skies Act of 2020''.

Section 2. Definitions.

    This section would define the terms ``Advisory Committee'', 
``air travel'', ``COVID-19 public health emergency'', and 
``Joint Task Force''.

Section 3. Joint Task Force on Air Travel During and After the COVID-19 
        Public Health Emergency.

    This section would direct the establishment of a Joint Task 
Force on Air Travel During and After the COVID-19 Public Health 
Emergency (Joint Task Force) by the Secretary of 
Transportation, the Secretary of Homeland Security, and the 
Secretary of Health and Human Services. The Joint Task Force 
would develop recommended requirements, plans, and guidelines 
to address the health, safety, security and logistical issues 
related to continuation of air travel during and after the 
COVID-19 health emergency. The section would provide direction 
to the Joint Task Force in developing its recommendations. 
Furthermore, this section would require the Joint Task Force, 
when developing its recommendations, to consider cost-benefit 
evaluations, consider funding constraints, and use risk-based 
decision making. The Joint Task Force would consult with 
relevant international entities and operators, including the 
International Civil Aviation Organization, with the goal of 
maximizing harmonization efforts for air travel. The Joint Task 
Force would be chaired by the Secretary of Transportation and 
vice chaired by the Secretary of Health and Human Services, or 
their respective designees, and include representatives from 
the Departments of Transportation, Homeland Security, Health 
and Human Services, the Federal Aviation Administration, the 
Transportation Security Administration, U.S. Customs and Border 
Protection, the Centers for Disease Control and Prevention, the 
Occupational Safety and Health Administration, the National 
Institute for Occupational Safety and Health, the Pipeline and 
Hazardous Materials Safety Administration, the Department of 
State, and the Environmental Protection Agency.

Section 4. Joint Federal Advisory Committee.

    This section would establish a Federal Advisory Committee 
(Advisory Committee) to advise the Joint Task Force that would 
be comprised of representatives from airports, air carriers, 
aviation manufacturers, labor organizations representing 
aviation industry workers (including, but not limited to, 
pilots, flight attendants, engineers, maintenance, mechanics, 
air traffic controllers, and safety inspectors), security 
screening personnel, consumer and air passenger rights 
organizations, public health experts, privacy and civil liberty 
organizations, manufacturers and integrators of air passenger 
screening and identity verification technologies, trade 
associations representing air carriers (including, but not 
limited to, major air carriers, low cost carriers, regional air 
carriers, cargo air carriers, and foreign air carriers), and 
trade associations representing airport operators (including, 
but not limited to, large hub, medium hub, small hub, nonhub 
primary, and nonprimary commercial service airports), as 
designated by the appropriate Secretary. Any vacancy on the 
Advisory Committee would be filled in the same manner as the 
original appointment and not affect the Advisory Committee's 
responsibilities. The Advisory Committee would develop and 
submit policy recommendations to the Joint Task Force. Not 
later than 14 days after the Advisory Committee submits policy 
recommendations to the Joint Task Force, the Secretary of 
Transportation would publish the policy recommendations on a 
publicly accessible website.

Section 5. Briefings and Reports.

    This section would provide that as soon as practicable, but 
not later than 6 months after the Joint Task Force is 
established, the Joint Task Force would begin providing 
preliminary briefings to Congress on the status of the 
development of the recommended requirements, plans, and 
guidelines. The Joint Task Force would submit a final report to 
Congress not later than 18 months after the date of enactment 
of this Act. This report would include all of the recommended 
requirements, plans, and guidelines and description of any 
actions taken by the Federal Government as a result of the 
recommendations by the Joint Task Force, as well as any 
consensus policy recommendations submitted by the advisory 
committee, and any action taken by the Joint Task Force in 
response to such recommendations.

Section 6. Termination.

    This section would provide that the Joint Task Force and 
Advisory Committee would terminate 30 days after the date on 
which the Joint Task Force submits the final report.

                        CHANGES IN EXISTING LAW

    In compliance with paragraph 12 of rule XXVI of the 
Standing Rules of the Senate, the Committee states that the 
bill as reported would make no change to existing law.