[Senate Report 119-118]
[From the U.S. Government Publishing Office]
Calendar No. 378
119th Congress } { Report
SENATE
2d Session } { 119-118
_______________________________________________________________________
BABY CHANGING ON BOARD ACT
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 71
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
April 22, 2026.--Ordered to be printed
______
U.S. GOVERNMENT PUBLISHING OFFICE
69-010 WASHINGTON : 2026
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred nineteenth congress
second session
TED CRUZ, Texas, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington
ROGER F. WICKER, Mississippi AMY KLOBUCHAR, Minnesota
DEB FISCHER, Nebraska BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee TAMMY BALDWIN, Wisconsin
TODD YOUNG, Indiana TAMMY DUCKWORTH, Illinois
TED BUDD, North Carolina JACKY ROSEN, Nevada
ERIC SCHMITT, Missouri BEN RAY LUJAN, New Mexico
JOHN CURTIS, Utah JOHN W. HICKENLOOPER, Colorado
BERNIE MORENO, Ohio JOHN FETTERMAN, Pennsylvania
TIM SHEEHY, Montana ANDY KIM, New Jersey
SHELLEY MOORE CAPITO, West Virginia LISA BLUNT ROCHESTER, Delaware
CYNTHIA M. LUMMIS, Wyoming
Brad Grantz, Majority Staff Director
Lila Harper Helms, Democratic Staff Director
Calendar No. 378
119th Congress } { Report
SENATE
2d Session } { 119-118
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BABY CHANGING ON BOARD ACT
----------------
April 22, 2026.--Ordered to be printed
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Mr. Cruz, from the Committee on Commerce, Science, and Transportation,
submitted the following
R E P O R T
[To accompany S. 71]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 71) to require Amtrak to
install baby changing tables in bathrooms on passenger rail
cars, having considered the same, reports favorably thereon
with an amendment in the nature of a substitute and recommends
that the bill, as amended, do pass.
Purpose of the Bill
The purpose of S. 71 is to require the National Railroad
Passenger Corporation (Amtrak) and intercity passenger rail
providers that have benefited from Federal financial assistance
to have baby changing tables installed in at least one
accessible public restroom on each applicable rail car newly
built and solicited for purchase after enactment.
Background and Needs
Many trips on Amtrak's most traveled route, the Northeast
Regional (primarily connecting Boston, New York, and
Washington, DC), can last between 3.5 and 8 hours.\1\ Amtrak's
long-distance routes, such as the California Zephyr connecting
Los Angeles to Chicago, can take upwards of 50 hours to
travel.\2\ Parents traveling by rail with infants should change
a child's diaper at least every 2 to 4 hours.\3\
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\1\``Northeast Regional Stops & Things to Know,'' U.S. Train Travel
Guide, https://amtrakguide.com/routes/northeast-regional/.
\2\``California Zephyr,'' Amtrak, https://www.amtrak.com/
california-zephyr-train.
\3\Mayo Clinic, ``Mayo Clinic Expert Suggests Proper Techniques for
Newborn Bathing and Skin Care Basics,'' January 22, 2013, https://
newsnetwork.mayoclinic.org/discussion/mayo-clinic-expert-suggests-
proper-techniques-for-newborn-bathing-and-skin-care-basics/.
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As introduced, this bill would require that all trains
owned and operated by Amtrak have a baby changing table in at
least one restroom on cars with a restroom. The requirement
would apply to passenger train equipment procured by Amtrak
after the date of enactment.
During the markup of S. 71, the Committee expanded the
scope of the bill to include any intercity passenger rail
provider that has benefited from Federal financial assistance.
Currently, the Committee is aware of two other intercity
passenger rail providers that would meet the criteria of the
legislation: the Alaska Railroad and Brightline.
This bill would effectively codify existing Amtrak and
Brightline policies, as all of the new equipment Amtrak is
procuring meets the requirements of the bill (and at present
most Amtrak and Brightline cars are already equipped with
changing tables).\4\ The bill would not authorize funding to
carry out this requirement. Thus, intercity passenger rail
providers must utilize current funding streams to install baby
changing tables on new passenger rail equipment solicited after
enactment.
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\4\``Seven Tips for Traveling with Kids on Amtrak,'' Amtrak,
https://www.amtrak.com/train-travel-with-kids-tips; The Palm Beach
Moms, ``Brightline Orlando to Miami,'' https://thepbmoms.com/.
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Summary of Provisions
S. 71 would do the following:
Require intercity passenger rail cars owned and
operated by Amtrak or an intercity passenger rail
provider that has benefited from Federal financial
assistance to have a baby changing table in at least
one restroom in each passenger rail car.
Define passenger rail car for which the requirements
of the bill apply as those that are newly built,
solicited for purchase after the date of enactment, and
have at least one restroom that is not in a private
accommodation.
Exclude from the requirements of the bill private
rail cars (defined as rolling stock that is only for
excursions, recreation, or private transportation) and
historical or antiquated passenger rail cars.
Require changing tables to be in all ADA-compliant
public restrooms.
Legislative History
S. 71 was introduced on January 13, 2025, by Senator Welch
(for himself and Senator Blackburn) and was referred to the
Committee on Commerce, Science, and Transportation of the
Senate. On February 12, 2026, the Committee met in an open
Executive Session and, by voice vote, ordered S. 71 reported
favorably with an amendment (in the nature of a substitute).
H.R. 248, the Baby Changing on Board Act, was introduced on
January 9, 2025, by Representative Underwood (for herself and
Representative Van Drew) and was referred to the Committee on
Transportation and Infrastructure of the House of
Representatives. On April 2, 2025, that Committee met in an
open Executive Session and, by voice vote, ordered H.R. 248 to
be reported favorably without amendment. Representatives
Fitzpatrick, Malliotakis, Hayes, Jackson (IL), Lawler, and
Scanlon were later added as cosponsors. On June 9, 2025, H.R.
248 passed the House under suspension of the rules by voice
vote.
118th Congress
S. 4315, the Baby Changing on Board Act, was introduced on
May 9, 2024, by Senator Welch (for himself and Senator
Blackburn) and was referred to the Committee on Commerce,
Science, and Transportation of the Senate.
H.R. 8995, the Baby Changing on Board Act, was introduced
on July 11, 2024, by Representative Underwood (for herself and
Representatives Adams, Fitzpatrick, Trone, Grijalva, Davis
(NC), Brown, Tokuda, and Van Drew) and was referred to the
Committee on Transportation and Infrastructure of the House of
Representatives. Nine Representatives were later added as
cosponsors. On September 18, 2024, that Committee met in open
Executive Session and, by unanimous consent, ordered H.R. 8995
reported favorably without amendment.
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:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
S. 71 would require Amtrak and any intercity passenger rail
service that receives financial assistance from the federal
government, to install baby changing tables in at least one
public restroom per rail car on all passenger trains purchased
after enactment, including restrooms that are subject to the
requirements of the Americans with Disabilities Act of 1990
(ADA). The bill also would require such restrooms to include
appropriate signage indicating the presence of a baby changing
table. Because Amtrak and intercity passenger rail services are
considered to be nonfederal entities, CBO estimates that
enacting the bill would have no effect on the federal budget.
Amtrak's new passenger trains are being designed to include
baby changing stations in all onboard bathrooms, including
those that are ADA-compliant. By requiring Amtrak to comply
with additional signage requirements on all new passenger
trains they own, S. 71 would impose a private-sector mandate as
defined in the Unfunded Mandates Reform Act (UMRA). CBO
estimates that the cost would not exceed the threshold
established in UMRA for private-sector mandates ($214 million
in 2026, adjusted annually for inflation).
The legislation would not impose an intergovernmental
mandate as defined in UMRA on the operators of intercity
passenger rail services because the bill's requirements would
be a condition of federal assistance.
On June 4, 2025, CBO transmitted a cost estimate for H.R.
248, the Baby Changing on Board Act, as ordered reported by the
House Committee on Transportation and Infrastructure on April
2, 2025. The two bills are similar, and CBO's estimates of
their budgetary effects are the same.
The CBO staff contacts for this estimate are Aurora Swanson
(for federal costs) and Brandon Lever (for mandates). The
estimate was reviewed by H. Samuel Papenfuss, Deputy Director
of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
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. 71, as reported, would not subject individuals to new
regulations. The bill would apply to Amtrak and other covered
intercity passenger rail providers by requiring the
installation of baby changing tables in at least one accessible
public restroom on each applicable passenger rail car solicited
for purchase after the date of enactment.
economic impact
S. 71, as reported, would not have a significant negative
impact on the Nation's economy. The bill would codify existing
Amtrak and Brightline practices for newly procured passenger
rail cars and would not require retrofitting of existing rail
cars. Any costs associated with compliance would be limited and
absorbed within existing procurement and capital planning
processes of the covered intercity rail providers. The
Committee does not expect the bill to result in a significant
increase in operating costs or fares for passengers.
privacy
S. 71, as reported, would not have any adverse impact on
the personal privacy of individuals.
paperwork
S. 71, as reported, would not impose any significant new
paperwork or recordkeeping requirements on individuals or
covered entities.
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 ``Baby Changing on Board Act''.
Section 2. Installation of baby changing tables on Amtrak trains
This section would define four relevant terms: ``ADA-
compliant public restroom'', ``baby changing table'', ``covered
passenger rail car'', and ``private rail car''. The term ``ADA-
compliant public restroom'' is defined as one that complies
with the Americans with Disabilities Act (ADA) and is not in a
private accommodation. The term ``baby changing table'' is one
that must be able to support a child with a body weight of up
to 30 pounds in a horizontal position. The term ``covered
passenger rail car'' means a rail car that is: (1) owned and
operated by Amtrak or an intercity passenger rail provider that
has received, or been the primary beneficiary of, Federal
financial assistance; (2) is newly built and solicited for
purchase after the date of enactment of the bill; and (3) has
at least one restroom in it that is not in a private
accommodation, but does not include a private rail car or a
historical or anticipated passenger rail car. The definition of
the term ``private rail car'' includes rail rolling equipment
that is used for excursions, recreational, or private
transportation purposes.
This section would require that all covered passenger rail
cars have a baby changing table in at least one restroom, and
when an ADA-compliant public restroom is on that rail car, such
restroom shall have a baby changing table.
Finally, this section would require that each restroom with
an installed baby changing table be marked by signage clearly
indicating the presence of such a table.
Changes in Existing Law
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, changes in existing law made by
the bill, as reported, are shown as follows (existing law
proposed to be omitted is enclosed in black brackets, new
material is printed in italic, existing law in which no change
is proposed is shown in roman):
UNITED STATES CODE
* * * * * * *
TITLE 49--TRANSPORTATION
* * * * * * *
Subtitle V--Rail Programs
* * * * * * *
PART C--PASSENGER TRANSPORTATION
* * * * * * *
CHAPTER 243--AMTRAK
* * * * * * *
Sec. 24313. Rail safety system program
In consultation with rail labor organizations, Amtrak shall
maintain a rail safety system program for employees working on
property owned by Amtrak. The program shall be a model for
other rail carriers to use in developing safety programs. The
program shall include--
(1) periodic analyses of accident information,
including primary and secondary causes;
(2) periodic evaluations of the activities of the
program, particularly specific steps taken in response
to an accident;
(3) periodic reports on amounts spent for
occupational health and safety activities of the
program;
(4) periodic reports on reduced costs and personal
injuries because of accident prevention activities of
the program;
(5) periodic reports on direct accident costs,
including claims related to accidents; and
(6) reports and evaluations of other information
Amtrak considers appropriate.
Sec. 24314. Baby changing tables
(a) Definitions.--In this section:
(1) ADA-compliant public restroom.--The term ``ADA-
compliant public restroom'' means a restroom that is
not in a private accommodation and complies with the
requirements set forth in section 242(a) of the
Americans with Disabilities Act of 1990 (42 U.S.C.
12162(a)).
(2) Baby changing table.--The term ``baby changing
table'' means an elevated structure generally designed
to support and retain a child with a body weight of up
to 30 pounds in a horizontal position for the purpose
of allowing an individual to change the child's diaper,
including pull-out or drop-down changing surfaces.
(3) Covered passenger rail car.--The term ``covered
passenger rail car''--
(A) means a passenger rail car that--
(i) is owned and operated by--
(I) the National Railroad
Passenger Corporation (commonly
known as ``Amtrak''); or
(II) another intercity
passenger rail service provider
that--
(aa) is the recipient
or subrecipient of
Federal financial
assistance; or
(bb) is a primary
beneficiary of Federal
financial assistance
from a project for
which another entity
has received Federal
financial assistance;
(ii) is newly built and was solicited
for purchase after the date of the
enactment of the Baby Changing on Board
Act; and
(iii) has at least one restroom that
is not in a private accommodation; and
(B) does not include--
(i) a private rail car; or
(ii) a historical or antiquated rail
passenger car (as defined in section
304(c)(2) of the Americans with
Disabilities Act of 1990 (42 U.S.C.
12184(c)(2))).
(4) Private rail car.--The term ``private rail car''
means rail rolling equipment that is used only for
excursion, recreational, or private transportation
purposes.
(b) Baby Changing Tables.--
(1) In general.--All covered passenger rail cars
shall have a baby changing table in at least one
restroom, and when an ADA-compliant public restroom is
present in the covered passenger car, such restroom
shall have a baby changing table.
(2) Signage.--Each restroom described in paragraph
(1) shall clearly indicate with signage the presence of
a baby changing table and such baby changing tables
shall be clearly identified with signage.
* * * * * * *
[all]