[House Report 119-222]
[From the U.S. Government Publishing Office]
119th Congress } { Report
HOUSE OF REPRESENTATIVES
1st Session } { 119-222
======================================================================
DEPARTMENT OF HOMELAND SECURITY VEHICULAR
TERRORISM PREVENTION AND MITIGATION ACT OF 2025
------------
August 8, 2025.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
------------
Mr. Garbarino, from the Committee on Homeland Security, submitted the
following
R E P O R T
[To accompany H.R. 1608]
[Including cost estimate of the Congressional Budget Office]
The Committee on Homeland Security, to whom was referred
the bill (H.R. 1608) to require the Secretary of Homeland
Security to produce a report on emerging threats and
countermeasures related to vehicular terrorism, and for other
purposes, having considered the same, reports favorably thereon
with an amendment and recommends that the bill as amended do
pass.
CONTENTS
Page
Purpose and Summary.............................................. 4
Background and Need for Legislation.............................. 4
Hearings......................................................... 5
Committee Consideration.......................................... 6
Committee Votes.................................................. 6
Committee Oversight Findings..................................... 6
C.B.O. Estimate, New Budget Authority, Entitlement Authority, and
Tax Expenditures............................................... 6
Federal Mandates Statement....................................... 7
Duplicative Federal Programs..................................... 7
Statement of General Performance Goals and Objectives............ 7
Congressional Earmarks, Limited Tax Benefits, and Limited Tariff
Benefits....................................................... 7
Advisory Committee Statement..................................... 7
Applicability to Legislative Branch.............................. 7
Section-by-Section Analysis of the Legislation................... 7
The amendment is as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Department of Homeland Security
Vehicular Terrorism Prevention and Mitigation Act of 2025''.
SEC. 2. FINDINGS.
Congress finds the following:
(1) On January 1, 2025, a devastating vehicular terrorist
attack occurred on Bourbon Street in New Orleans, Louisiana,
when an assailant inspired by the Islamic State drove a vehicle
into a crowd and engaged in a shootout with law enforcement.
This tragic incident resulted in the loss of 14 lives and
injuries to at least thirty-five others, including two police
officers.
(2) Vehicle-ramming attacks and other vehicular terrorist
incidents represent an enduring and evolving threat to public
safety in the United States and around the world, targeting
innocent civilians and first responders.
(3) These attacks, carried out by both organized terrorist
groups and individual actors, often aim to exploit high-density
public gatherings, critical infrastructure, and key
transportation hubs, causing mass casualties and widespread
disruption.
(4) Emerging automotive technologies, such as autonomous
vehicles, Advanced Driver Assistance System (ADAS)
capabilities, and ride-sharing platforms, create new
vulnerabilities that could be leveraged by malicious actors to
conduct sophisticated vehicle-based attacks.
(5) The Department of Homeland Security, through agencies
like the Transportation Security Administration and the
Cybersecurity and Infrastructure Security Agency, plays a vital
role in detecting, assessing, and mitigating the risks
associated with vehicle-based threats.
(6) Strengthened coordination between Federal, State, local,
Tribal, territorial, and private sector stakeholders is
essential to enhance prevention, preparedness, and response
efforts, ensuring the safety of communities across the nation.
SEC. 3. REPORT ON EMERGING THREATS AND COUNTERMEASURES RELATED TO
VEHICULAR TERRORISM.
(a) Report.--
(1) In general.--Not later than 180 days after the date of
the enactment of this Act, the Secretary of Homeland Security,
in coordination with the Administrator of the Transportation
Security Administration and the Director of the Cybersecurity
and Infrastructure Security Agency, shall submit to the
appropriate congressional committees a report on the Department
of Homeland Security's efforts to prevent, deter, and respond
to vehicular terrorism.
(2) Elements.--The report under paragraph (1) shall include
the following:
(A) An assessment of the current and emerging threats
posed by vehicular terrorism, as well as the following:
(i) An analysis of the methods, tactics, and
motivations used by perpetrators of vehicular
terrorism.
(ii) An evaluation of domestic and
international trends in vehicular terrorism.
(iii) An identification of potential future
threats related to the misuse of connected or
autonomous vehicles, Advanced Driver Assistance
System (ADAS) -equipped vehicles, ride-sharing
services, and advancements in automotive
technologies, including cybersecurity threats
to underlying software technologies (including
artificial intelligence-enabled technologies)
powering autonomous vehicles.
(B) A review of higher-risk locations and events that
may be vulnerable to vehicular terrorism, including the
following:
(i) Critical infrastructure sites such as the
following:
(I) Airports.
(II) Seaports.
(III) Federal, State, local, Tribal,
and territorial government facilities.
(IV) Power plants.
(V) Substations.
(VI) Oil refineries.
(VII) Public transportation hubs.
(VIII) Healthcare facilities.
(ii) Soft-targets and crowded spaces,
including mass gatherings and widely attended
events such as parades, concerts, sporting
events, political rallies, holiday markets,
places of worship, public demonstrations, and
ceremonial events.
(iii) High-density urban areas with limited
physical security measures such as
pedestrianized city centers, commercial
districts, residential neighborhoods, public
parks, recreational areas, educational
institutions, and tourist destinations.
(C) A comprehensive summary of actions taken by the
Department of Homeland Security, the Transportation
Security Administration, and the Cybersecurity and
Infrastructure Security Agency to research measures
that prevent, deter, and respond to vehicular
terrorism, including the following:
(i) The identification and coordination with
State, local, Tribal, and territorial
governments and industry partners for the
strategic placement of physical barriers,
bollards, and other protective infrastructure
at higher-risk locations.
(ii) The research, testing, and deployment of
geofencing, surveillance systems, cybersecurity
measures, and other technologies designed to
monitor, restrict, and manage vehicle access to
such higher-risk locations.
(iii) The creation of real-time response
strategies and operational plans to neutralize
vehicular terrorism, including ongoing research
into best practices for threat detection,
incident management, and threat containment.
(D) An evaluation of the Department's engagement with
private and public sector stakeholders to address risks
of vehicular terrorism, including the following:
(i) Collaboration with vehicle rental
companies, ride-sharing platforms, vendors of
connected, autonomous, and ADAS technologies,
freight operators, and automotive
manufacturers.
(ii) Development of industry-specific best
practices to prevent the misuse of vehicles.
(iii) Protocols for sharing threat
intelligence and security guidance with private
sector partners.
(E) A description of the Department's coordination
efforts with Federal, State, local, Tribal, and
territorial law enforcement agencies to prevent
vehicular terrorism, including the following:
(i) Mechanisms for sharing threat
intelligence and situational awareness.
(ii) Guidance provided to such law
enforcement agencies regarding implementing
countermeasures, such as traffic control
measures and rapid vehicle containment
protocols.
(iii) Joint exercises and training programs
to enhance interagency preparedness and
response.
(iv) Efforts to equip law enforcement, first
responders, and private sector partners with
the knowledge and skills to recognize and
respond to vehicular terrorism, including the
development of specialized curricula addressing
emerging threats, such as connected or
autonomous vehicles and other advanced
technologies.
(v) Outreach efforts to ensure that smaller
jurisdictions have access to necessary training
resources and public safety awareness tools.
(F) Recommendations for the research, development,
and deployment of technologies to detect, deter, and
mitigate vehicular terrorism, including the following:
(i) Vehicle immobilization systems and remote
disablement technologies.
(ii) Predictive analytics and threat
detection software that incorporate artificial
intelligence and machine learning algorithms to
identify and flag in real time anomalous or
suspicious vehicle behavior, as well as
associated technologies to disable or divert a
vehicle before it becomes a threat.
(iii) Innovations in cybersecurity to prevent
the hacking or misuse of connected, autonomous,
or ADAS-equipped vehicles.
(G) A description of the Department's engagement with
privacy, civil rights, and civil liberties stakeholders
to ensure all countermeasures and technologies,
including artificial-intelligence and machine learning
algorithms, deployed to prevent vehicular terrorism are
implemented in a manner that respects individual rights
and freedoms.
(H) A review of the Department's public awareness
initiatives focused on the following:
(i) Educating the public on recognizing
suspicious vehicle-related behavior and
reporting potential threats.
(ii) Building trust and fostering
collaboration between communities and law
enforcement agencies.
(iii) Enhancing resilience by encouraging
community-based security measures.
(I) Such other elements as the Secretary of Homeland
Security considers appropriate.
(3) Form.--The report under paragraph (1) shall be submitted
in classified form, but may include an unclassified executive
summary.
(4) Publication.--The unclassified executive summary of the
report required under paragraph (1) shall be published on a
publicly accessible website of the Department of Homeland
Security.
(b) Briefing.--Not later than 30 days after the submission of the
report under subsection (a), the Secretary of Homeland Security shall
provide to the appropriate congressional committees a briefing on the
findings, conclusions, and recommendations of such report.
(c) Definitions.--In this section:
(1) Appropriate congressional committees.--The term
``appropriate congressional committees'' means--
(A) the Committee on Homeland Security of the House
of Representatives; and
(B) the Committee on Commerce, Science, and
Transportation and the Committee on Homeland Security
and Governmental Affairs of the Senate.
(2) Vehicular terrorism.--The term ``vehicular terrorism''
means an action that utilizes automotive transportation to
commit terrorism (as such term is defined in section 2(18) of
the Homeland Security Act of 2002 (6 U.S.C. 101(18))).
PURPOSE AND SUMMARY
H.R. 1608, the ``Department of Homeland Security Vehicular
Terrorism Prevention and Mitigation Act of 2025,'' requires the
Secretary of Homeland Security to produce a comprehensive
report on the Department's efforts to detect, prevent, and
respond to threats associated with vehicular terrorism. This
report, due within 180 days of enactment, is to be developed in
coordination with the Transportation Security Administration
(TSA) and the Cybersecurity and Infrastructure Security Agency
(CISA).
The legislation requires the Department to assess current
and emerging threats posed by vehicle-ramming attacks and the
potential exploitation of advanced automotive technologies,
including autonomous and connected vehicles. It also mandates a
review of high-risk locations vulnerable to such attacks, an
analysis of security countermeasures, coordination practices
with law enforcement and industry, and recommendations for
deploying advanced technologies and protective infrastructure.
BACKGROUND AND NEED FOR LEGISLATION
On January 1, 2025, a deadly vehicular terrorist attack
occurred on Bourbon Street in New Orleans, Louisiana, when an
assailant inspired by the Islamic State drove a vehicle into a
crowded area before engaging in a shootout with law
enforcement.\1\ The attack resulted in the deaths of 14
individuals and injuries to at least dozens of others.\2\ This
tragedy underscores the growing threat posed by vehicle-ramming
attacks, particularly at public events and soft-target
locations.
---------------------------------------------------------------------------
\1\Press Release, Federal Bureau of Investigation, FBI Statement on
the Attack in New Orleans (Jan. 1, 2025) (on file with author).
\2\Mary Kekatos et al., What we know about the victims of the New
Orleans attack: `So beautiful and full of life', ABC News, (Jan. 26,
2025) https://abcnews.go.com/US/victims-new-orleans-
attack/story?id=117246659.
---------------------------------------------------------------------------
Vehicular terrorism has emerged as a tactic of choice among
both foreign terrorist organizations and homegrown violent
extremists due to its simplicity, accessibility, and
devastating impact.\3\ High-profile terrorist groups such, as
ISIS and al-Qaeda, have repeatedly encouraged followers to use
vehicles as weapons, citing the ease with which such attacks
can be carried out with minimal training or resources.\4\ This
tactic has been deployed across major global cities, often
targeting pedestrian zones, transit hubs, and celebratory
events.\5\
---------------------------------------------------------------------------
\3\Alexandre Rodde and Justin Olmstead, Into the Crowd: The
Evolution of Vehicular Attacks and Prevention Efforts (March 2025),
COMBATING TERRORISM CENTER AT WEST POINT, (last visited Mar. 2025)
https://ctc.westpoint.edu/into-the-crowd-the-evolution-of-vehicular-
attacks-and-prevention-efforts/.
\4\Id.
\5\Id.
---------------------------------------------------------------------------
The threat landscape is further complicated by
technological advancements in the automotive sector. The
increasing availability of autonomous vehicles, advanced
driver-assistance systems (ADAS), and connected vehicle
platforms introduces new vulnerabilities that could be
exploited by malicious actors. These systems may be subject to
manipulation or cyber intrusion, creating opportunities for
more sophisticated or large-scale vehicular attacks.
Despite the evolving nature of this threat, Federal
coordination remains uneven and fragmented. While the
Department plays a central role in safeguarding critical
infrastructure and public gatherings, there is a growing need
for a more strategic and integrated Federal response. This
includes improving threat assessments, accelerating the
deployment of countermeasures, and strengthening partnerships
with state, local, tribal, territorial (SLTT) entities, and
private sector stakeholders, particularly in the
transportation, rideshare, and automotive manufacturing
industries.
H.R. 1608 addresses this gap by requiring the Department to
develop a timely and detailed threat assessment that evaluates
both current and emerging risks related to vehicular terrorism.
The report will inform Congress and security stakeholders about
defensive strategies, vehicle-disabling technologies,
infrastructure protections, coordination mechanisms, public
awareness efforts, and privacy considerations. With major
domestic mass gatherings and global events on the horizon,
including the 2026 FIFA World Cup and 2028 Summer Olympics,
this legislation will ensure the Federal government is
proactively addressing the vehicular terrorism threat to
protect the American public and international visitors.
HEARINGS
The Committee held the following hearing in the 119th
Congress that informed H.R. 1608:
On Tuesday, April 8, 2025, the Subcommittee on
Transportation and Maritime Security held a hearing entitled,
``America on the Global Stage: Examining Efforts to Secure and
Improve the U.S. Travel System for Significant International
Events.'' The Subcommittee received testimony from the
following witnesses: Mr. Geoff Freeman, President and Chief
Executive Officer, U.S. Travel Association; Mr. Jon Gruen,
Chief Executive Officer, Fortem Technologies; and Dr. Everett
Kelley, National President, American Federation of Government
Employees.
COMMITTEE CONSIDERATION
The Committee met on Wednesday, April 9, 2025, a quorum
being present, to consider H.R. 1608 and ordered the measure to
be favorably reported to the House, as amended, by voice vote.
COMMITTEE VOTES
Clause 3(b) of rule XIII requires the Committee to list the
recorded votes on the motion to report legislation and
amendments thereto.
No recorded votes were requested during consideration of
H.R. 1608.
COMMITTEE OVERSIGHT FINDINGS
In compliance with clause 3(c)(1) of rule XIII, the
Committee advises that the findings and recommendations of the
Committee, based on oversight activities under clause 2(b)(1)
of rule X, are incorporated in the descriptive portions of this
report.
CONGRESSIONAL BUDGET OFFICE ESTIMATE, NEW BUDGET AUTHORITY,
ENTITLEMENT AUTHORITY, AND TAX EXPENDITURES
With respect to the requirements of clause 3(c)(2) of rule
XIII and section 308(a) of the Congressional Budget Act of
1974, and with respect to the requirements of clause 3(c)(3) of
rule XIII and section 402 of the Congressional Budget Act of
1974, the Committee adopts as its own the estimate of any new
budget authority, spending authority, credit authority, or an
increase or decrease in revenues or tax expenditures contained
in the cost estimate prepared by the Director of the
Congressional Budget Office.
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
H.R. 1608 would require the Department of Homeland Security
(DHS) to report to the Congress on its efforts to detect,
prevent, and respond to acts of terrorism in which a vehicle is
used as a weapon. The report would include an assessment of
current and emerging threats, a review of high-risk locations,
and recommendations for research and development. H.R. 1608
would require DHS to brief the Congress on the report's
findings and recommendations.
Based on the costs of similar activities, CBO estimates
that implementing H.R. 1608 would cost less than $500,000 over
the 2025-2030 period. Any related spending would be subject to
the availability of appropriated funds.
The CBO staff contact for this estimate is Jeremy Crimm.
The estimate was reviewed by H. Samuel Papenfuss, Deputy
Director of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
FEDERAL MANDATES STATEMENT
The Committee adopts as its own the estimate of Federal
mandates prepared by the Director of the Congressional Budget
Office pursuant to section 423 of the Unfunded Mandates Reform
Act of 1995.
DUPLICATIVE FEDERAL PROGRAMS
Pursuant to clause 3(c) of rule XIII, the Committee finds
that H.R. 1608 does not contain any provision that establishes
or reauthorizes a program known to be duplicative of another
Federal program.
STATEMENT OF GENERAL PERFORMANCE GOALS AND OBJECTIVES
Pursuant to clause 3(c)(4) of rule XIII, the objective of
H.R. 1608 is to require the Secretary of Homeland Security to
produce a report on emerging threats and countermeasures
related to vehicular terrorism.
CONGRESSIONAL EARMARKS, LIMITED TAX BENEFITS, AND LIMITED
TARIFF BENEFITS
In compliance with rule XXI, this bill, as reported,
contains no congressional earmarks, limited tax benefits, or
limited tariff benefits as defined in clause 9(d), 9(e), or
9(f) of rule XXI.
ADVISORY COMMITTEE STATEMENT
No advisory committees within the meaning of section 5(b)
of the Federal Advisory Committee Act were created by this
legislation.
APPLICABILITY TO THE LEGISLATIVE BRANCH
The Committee finds that H.R. 1608 does not relate to the
terms and conditions of employment or access to public services
or accommodation within the meaning of section 102(b)(3) of the
Congressional Accountability Act.
SECTION-BY-SECTION ANALYSIS OF THE LEGISLATION
Section 1. Short title
This section designates the legislation as the ``Department
of Homeland Security Vehicular Terrorism Prevention and
Mitigation Act of 2025.''
Section 2. Findings
This section outlines Congress's findings regarding the
persistent and evolving threat of vehicular terrorism. It
references the January 1, 2025, attack in New Orleans and
highlights the vulnerability of soft targets, the influence of
terrorist propaganda, and the emergence of risks related to
autonomous vehicles, ride-sharing platforms, and cybersecurity.
The section emphasizes DHS's critical role in countering these
threats and the need for collaboration across all levels of
government and the private sector.
Section 3. Report on emerging threats and countermeasures related to
vehicular terrorism
This section requires the Secretary of Homeland Security,
in coordination with the TSA Administrator and the CISA
Director, to submit a comprehensive report to the appropriate
congressional committees within 180 days of enactment. The
report must provide a detailed assessment of the Department's
efforts to detect, prevent, and respond to threats associated
with vehicular terrorism. Specifically, the report must
evaluate current and emerging threats, including tactics and
motivations used by perpetrators, and examine how advanced
vehicle technologies, such as autonomous vehicles, connected
platforms, and ADAS-equipped systems, could be exploited by
malicious actors. It must also identify high-risk locations and
events that are vulnerable to vehicular attacks, such as
critical infrastructure sites, large public gatherings, and
pedestrian-heavy urban areas, and describe the measures being
taken to mitigate these risks.
The report must include a summary of actions taken by the
Department and its components to deploy protective
infrastructure, geofencing tools, and surveillance systems, as
well as the Department's coordination with state, local,
tribal, and territorial governments and private sector partners
to develop and implement deterrent strategies. Additionally, it
must review the Department's engagement with industry
stakeholders, such as rental car companies, ride-sharing
platforms, and vehicle manufacturers, to establish security
protocols and prevent misuse of vehicles for nefarious
purposes. The report must also describe ongoing efforts to
train law enforcement and first responders, conduct joint
exercises, and provide resources to jurisdictions of varying
capacities to improve preparedness.
Further, the report is required to present recommendations
for the development and deployment of advanced technologies,
including vehicle disablement tools, predictive analytics,
artificial intelligence-enabled monitoring systems, and
cybersecurity safeguards for emerging vehicle platforms. It
must also include a description of the Department's engagement
with privacy and civil liberties stakeholders to ensure that
all counterterrorism technologies are implemented in a manner
that respects constitutional protections. Finally, the report
must address public education initiatives designed to raise
awareness, foster community-law enforcement cooperation, and
encourage vigilance. The final report shall be submitted in
classified form but must include an unclassified executive
summary that will be published on a publicly accessible
Department website. The Secretary is also required to brief the
appropriate congressional committees on the findings,
conclusions, and recommendations of the report no later than 30
days after its submission.
Sec. 3(c)(1) defines the term ``appropriate congressional
committees'' as the Committee of Homeland Security of the House
of Representatives and the Committee on Commerce, Science, and
Transportation and the Committee on Homeland Security and
Governmental Affairs of the Senate.
Sec. 3(c)(2) defines the term ``vehicular terrorism'' as an
action that utilizes automotive transportation to commit
terrorism (as defined in section 2(18) of the Homeland Security
Act of 2002 (6 U.S.C. 101(18)).
[all]