[Senate Report 119-119]
[From the U.S. Government Publishing Office]
Calendar No. 379
119th Congress } { Report
SENATE
2d Session } { 119-119
_______________________________________________________________________
988 LIFELINE LOCATION IMPROVEMENT ACT OF 2026
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 3199
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
April 22, 2026.--Ordered to be printed
______
U.S. GOVERNMENT PUBLISHING OFFICE
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. 379
119th Congress } { Report
SENATE
2d Session } { 119-119
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988 LIFELINE LOCATION IMPROVEMENT ACT OF 2026
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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. 3199]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 3199) to establish a multi-
stakeholder advisory committee tasked with providing detailed
recommendations to address challenges to transmitting
geolocation information with calls to the 988 Suicide and
Crisis Lifeline, 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 the title and
recommends that the bill, as amended, do pass.
PURPOSE OF THE BILL
The purpose of S. 3199 is to direct the Federal
Communications Commission to initiate a notice of inquiry (NOI)
and to instruct the Government Accountability Office (GAO) to
complete a study and report providing detailed recommendations
to address challenges to transmitting geolocation information
with calls to the 988 Suicide and Crisis Lifeline.
BACKGROUND AND NEEDS
The National Suicide Prevention Lifeline launched on
January 1, 2005, with funding from a Federal grant awarded by
the Department of Health and Human Services' (HHS) Substance
Abuse and Mental Health Services Administration (SAMHSA) to
Vibrant Emotional Health, a New York City-based nonprofit
affiliate of Mental Health America.\1\ The service initially
connected 109 crisis centers nationwide through the 1-800-273-
8255 (TALK) hotline and answered approximately 20,000 calls in
its first year.\2\
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\1\``About 988,'' 988 Lifeline, https://988lifeline.org/about/.
\2\Ibid.
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In a 2019 report to Congress, the Federal Communications
Commission (FCC) proposed designating 988 as the three-digit
number for the hotline, finding that the abbreviated number
``would likely make it easier for Americans in crisis to access
potentially life-saving resources.''\3\ On July 16, 2020, the
FCC adopted rules establishing 988 as the nationwide three-
digit dialing code.\4\ On October 17, 2020, the National
Suicide Hotline Designation Act of 2020 was signed into law,
codifying 988 as the new Suicide and Crisis Lifeline and
Veterans Crisis Line phone number.\5\ In November 2021, the FCC
adopted additional rules expanding 988 Suicide and Crisis
Lifeline (988 Lifeline) services to include text messaging.\6\
By July 2022, the United States completed its transition from
the 10-digit National Suicide Prevention Lifeline to the 988
Lifeline.\7\
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\3\``FCC Staff Recommends 3-Digit Number for Suicide Prevention
Hotline,'' Federal Communications Commission, August 15, 2019, https://
www.fcc.gov/document/fcc-staff-recommends-3-digit-number-suicide-
prevention-hotline.
\4\``988 Suicide & Crisis Lifeline,'' Federal Communications
Commission, https://www.fcc.gov/988-suicide-and-crisis-lifeline.
\5\Ibid.
\6\Ibid.
\7\Ibid.
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Today, the 988 Lifeline is a national network of over 200
crisis centers, supported by State and local resources as well
as Federal grants administered by SAMHSA. The 988 Lifeline
provides around-the-clock, confidential support to individuals
in crisis.\8\ Since the launch of the 988 Lifeline in July
2022, the hotline has received more than 19.8 million contacts
across calls, texts, and chats.\9\
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\8\Ibid.
\9\``988 Lifeline Performance Metrics,'' Substance Abuse and Mental
Health Services Administration, https://www.samhsa.gov/mental-health/
988/performance-metrics.
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A long-standing challenge for the 988 Lifeline has been
improving the routing of 988 calls and text messages so that
individuals in crisis can be connected to their local crisis
centers, rather than routed based on the area code of the
caller, which was the Lifeline's original architecture.\10\ In
the National Suicide Hotline Designation Act of 2020, Congress
required the FCC to report on the cost and feasibility of
conveying automatic dispatchable location with 988 calls. In
2021, the FCC submitted its required report to Congress,
explaining that automatic dispatchable location information for
988 raises complex technical, legal, and privacy issues and
recommending that relevant Federal, State, local, industry and
mental health stakeholders work together to develop
recommendations on whether and how to proceed.\11\
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\10\Federal Communications Commission, FCC Adopts Rules Requiring
Georouting for Texts to 988, July 24, 2025, https://www.fcc.gov/
document/fcc-adopts-rules-requiring-georouting-texts-988.
\11\Federal Communications Commission, 988 Geolocation Report,
April 15, 2021, https://docs.fcc.gov/public/attachments/DOC-
371709A1.pdf (recommending ``the establishment of a multi-stakeholder
advisory committee, with experts tasked with developing detailed
recommendations on how to address several challenging matters that must
be resolved to make transmitting dispatchable location with 988 calls
feasible.'').
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The report also distinguished between georouting, which
enables calls to be directed to local crisis centers without
transmitting precise location information, and geolocation,
which enables a caller's precise location information to be
transmitted with the call for emergency response purposes,
finding that implementing geolocation raises complex issues
related to technical feasibility, accuracy, privacy, legal
authority, and cost recovery, while georouting provided
benefits without many of the same burdens.
In September 2024, two major U.S. wireless carriers
introduced georouting capabilities, allowing 988 calls to be
routed based on a caller's approximate location rather than
area code. In October 2024, the FCC adopted rules requiring all
U.S. wireless providers to implement georouting for 988
calls.\12\ Nationwide providers had to comply with georouting
requirements for wireless calls to 988 by January 13, 2025,
while non-nationwide providers must comply by December 14,
2026.\13\ In July 2025, the FCC adopted rules requiring
wireless providers to implement georouting solutions for 988
text messages.\14\
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\12\Supra note 4.
\13\Ibid.
\14\Supra note 10.
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The 988 Lifeline Location Improvement Act of 2026 would
direct the FCC to initiate an NOI to gather input on the best
ways to address geolocation. The bill would also require the
Government Accountability Office (GAO) to conduct a study and
report to Congress on the opportunities and obstacles related
to implementing geolocation for the 988 Suicide and Crisis
Lifeline.\15\
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\15\Supra note 11.
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SUMMARY OF PROVISIONS
S. 3199 would do the following:
Require the FCC to initiate an NOI within 270 days
of enactment to address the challenges to transmitting
geolocation information with calls to the 988 Suicide
and Crisis Lifeline. In the NOI, the FCC would need to
consider its legal authorities to mandate geolocation
information; the protection of consumer privacy;
feasibility and implementation standards for
telecommunications providers, 911 providers, public
safety answering points, and local crisis centers;
assessment of potential costs and recovery of costs;
technical challenges; and available technologies for
geolocation information.
Require the GAO to conduct a study and provide a
report to Congress not later than 180 days after
enactment on the opportunities and challenges related
to implementing geolocation for the 988 Suicide and
Crisis Lifeline, including policy considerations
regarding consumer privacy and legal authority,
technical implementation standards, and cost recovery.
LEGISLATIVE HISTORY
S. 3199 was introduced on November 19, 2025, by Senator
Barrasso (for himself and Senators Lujan, Blackburn, Capito,
Crapo, Daines, Fischer, Gillibrand, Hassan, Klobuchar, Risch,
and Warnock) and was referred to the Committee on Commerce,
Science, and Transportation of the Senate. Senator Ossoff was
later added as a cosponsor. On February 12, 2026, the Committee
met in open Executive Session and, by voice vote, ordered S.
3199 reported favorably with an amendment (in the nature of a
substitute with an amendment).
118th Congress
S. 3482, the 988 Lifeline Location Improvement Act of 2023,
was introduced on December 13, 2023, by Senator Barrasso (for
himself and Senator Lujan) and was referred to the Committee on
Commerce, Science, and Transportation of the Senate. The bill
had 10 additional cosponsors.
H.R. 6763, an identical House bill to S. 3482, was
introduced on December 13, 2023, by Representative Molinaro
(for himself and Representative Tonko) and was referred to the
Committee on Energy and Commerce of the House of
Representatives. The bill had 25 additional cosponsors.
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. 3199 would require the Federal Communications Commission
(FCC) to solicit public comment on the challenges of
transmitting geolocation information for calls to the 988
Suicide and Crisis Lifeline and to evaluate the information it
receives. The bill also would require the Government
Accountability Office (GAO) to report to the Congress on the
challenges and potential benefits of implementing geolocation
capabilities for the lifeline.
Based on the cost of similar solicitations of public
comment, CBO estimates that the cost for the FCC to implement
the bill would total less than $500,000 over the 2026-2031
period. Because the FCC is authorized to collect fees each year
sufficient to offset the appropriated costs of its regulatory
activities, CBO estimates that the net cost to the FCC would be
negligible, assuming appropriation actions consistent with that
authority.
Based on the cost of similar activities, CBO estimates that
the cost for GAO to complete the report would be less than
$500,000. Any related spending would be subject to the
availability of appropriated funds.
If the FCC increases annual fees to offset the cost of
implementing provisions in the bill, S. 3199 would increase the
cost of an existing private-sector mandate as defined in the
Unfunded Mandates Reform Act (UMRA) on private-sector entities
required to pay those fees. CBO estimates that the incremental
cost of the mandate would be small and would fall well below
the annual threshold established for private-sector mandates
($214 million in 2026, adjusted annually for inflation).
S. 3199 contains no intergovernmental mandates as defined
in UMRA.
The CBO staff contacts for this estimate are David Hughes
(for federal costs) and Rachel Austin (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
Because S. 3199 does not create any new programs, the
legislation will have no additional regulatory impact, and will
result in no additional reporting requirements. The legislation
will have no further effect on the number or types of
individuals and businesses regulated, the economic impact of
such regulation, the personal privacy of affected individuals,
or the paperwork required from such individuals and businesses.
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 ``988 Lifeline Location Improvement Act of 2026''.
Section 2. Definitions
This section would define the terms ``911 system service
provider'', ``appropriate committees of Congress'',
``dispatchable location'', ``emergency communications center'',
and ``telecommunications service provider''.
Section 3. Notice of inquiry
This section would require the FCC to initiate an NOI to
address challenges associated with transmitting geolocation
information for calls to the 988 Suicide and Crisis Lifeline.
The NOI would have to be initiated no later than 270 days after
enactment.
In evaluating responses to the NOI, the Commission would be
required to consider the following:
legal authority regarding the use of geolocation,
including dispatchable location, for 988 calls;
consumer privacy protections;
feasibility and technical standards;
potential costs, funding needs, and cost-recovery
options;
technical challenges for geolocation transmission in
988 American Sign Language video services; and
technologies currently available to provide
dispatchable location information and methods for
transferring location information from 988 to 911.
Section 4. GAO report
This section would require the Comptroller General, within
180 days of enactment, to conduct a study on the opportunities
and challenges related to implementing geolocation for the 988
Suicide and Crisis Lifeline and submit a report on this study
to the Committee on Commerce, Science, and Transportation of
the Senate; the Committee on Health, Education, Labor, and
Pensions of the Senate; and the Committee on Energy and
Commerce of the House of Representatives. The report would be
required to address consumer privacy and legal authority to
mandate geolocation; technical standards for telecommunications
providers, 911 system providers, emergency communications
centers, and local crisis centers; and potential cost recovery
or additional funding requirements for telecommunications
providers, the 988 Suicide and Crisis Lifeline, the Veterans
Crisis Line, and local crisis centers.
In conducting the study, the Comptroller General would be
required to consult with the following:
representatives from telecommunications service
providers or their associations;
handset manufacturers or their associations;
emergency communications centers or their
associations;
911 system providers or their associations;
State governments, including low-population States;
local governments, including those representing
small or rural communities;
the 988 Suicide and Crisis Lifeline;
local crisis centers or their associations;
the Veterans Crisis Line;
the Substance Abuse and Mental Health Services
Administration;
mental health services organizations;
community mental health centers; and
individuals experienced in providing services for
people who are deaf or hard of hearing and those who
access the 988 Lifeline through direct video calling
and video relay services.
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.
[all]