[Senate Report 119-84]
[From the U.S. Government Publishing Office]
Calendar No. 195
119th Congress } { Report
SENATE
1st Session } { 119-84
_______________________________________________________________________
DEPLOYING AMERICAN BLOCKCHAINS ACT OF 2025
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 1492
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
October 21, 2025.--Ordered to be printed
------
U.S. GOVERNMENT PUBLISHING OFFICE
69-010 WASHINGTON : 2025
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred nineteenth congress
first 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. 195
119th Congress } { Report
SENATE
1st Session } { 119-84
=======================================================================
DEPLOYING AMERICAN BLOCKCHAINS ACT OF 2025
----------------
October 21, 2025.--Ordered to be printed
----------------
Mr. Cruz, from the Committee on Commerce, Science, and Transportation,
submitted the following
R E P O R T
[To accompany S. 1492]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 1492) to require the Secretary
of Commerce support the leadership of the United States with
respect to the deployment, use, application, and
competitiveness of blockchain technology, and for other
purposes, having considered the same, reports favorably thereon
without amendment and recommends that the bill do pass.
PURPOSE OF THE BILL
The purpose of S. 1492 is to require the Secretary of
Commerce to advise the President on blockchain policy,
establish a 7-year advisory committee to promote blockchain
deployment and competitiveness, develop and publish a best
practices compendium, and submit annual reports.
BACKGROUND AND NEEDS
Blockchain is a distributed ledger technology that enables
data to be recorded, synchronized, and validated across a
decentralized network without the need for a central authority.
Each block contains a timestamped record of transactions and
links cryptographically to the previous block, forming a
tamper-proof chain. This architecture enhances transparency and
security, making it difficult to alter past records without
broad consensus among network participants. Blockchain powers
cryptocurrencies like Bitcoin and Ethereum, and its
applications extend into supply chain logistics, identity
verification, digital payments, and contract automation.\1\
---------------------------------------------------------------------------
\1\Kristen Busch, ``Blockchain: Novel Provenance Applications,''
Congressional Research Service, April 12, 2022, https://
www.congress.gov/crs-product/R47064.
---------------------------------------------------------------------------
The blockchain market is expanding across industries. As of
April 10, 2025, global cryptocurrency market capitalization has
surged to $2.62 trillion, up from $196 billion 5 years ago.\2\
Enterprises are piloting real-world blockchain applications and
realizing efficiency gains--for instance, tracing the origin of
fruits at grocery stores now takes seconds instead of days.\3\
Around the world, countries are actively exploring blockchain
technologies for various purposes: the United Kingdom is
piloting blockchain-based bond issuance through a digital
securities sandbox,\4\ while Australia is testing blockchain-
based supply chain management systems.\5\
---------------------------------------------------------------------------
\2\``Cryptocurrency Prices Today by Market Cap,'' Forbes, accessed
April 10, 2025, https://www.forbes.com/digital-assets/crypto-prices/
?sh=4eb963042478; ``Global Cryptocurrency Market Cap Charts,''
CoinGecko, accessed April 11, 2025, https://www.coingecko.com/en/
global-charts.
\3\Hyperledger, Case Study: How Walmart Brought Unprecedented
Transparency to the Food Supply with Hyperledger Fabric, 2022, https://
8112310.fs1.hubspotusercontent-na1.net/hubfs/8112310/Hyperledger/
Printables/Hyperledger_CaseStudy_Walmart_Printable_V4.pdf.
\4\``The First Digital Gilt to Use Blockchain Technology,''
Penningtons Manches Cooper, November 2, 2024, https://
www.penningtonslaw.com/news-publications/latest-news/2025/the-first-
digital-gilt-to-use-blockchain-technology.
\5\``Australia's Blockchain Roadmap,'' Australian Government,
Department of Foreign Affairs and Trade, accessed April 11, 2025,
https://www.dfat.gov.au/about-us/publications/trade-and-investment/
business-envoy-april-2021-digital-trade-edition/australias-blockchain-
roadmap.
---------------------------------------------------------------------------
In the United States, bipartisan congressional interest in
blockchain continues to grow.\6\ Lawmakers and Federal agencies
are actively studying the technology and exploring ways to
improve coordination, support innovation, and better understand
its regulatory implications.
---------------------------------------------------------------------------
\6\``Members,'' Congressional Blockchain Caucus, accessed April 11,
2025, https://congressionalblockchaincaucus-schweikert.house.gov/
members); ``Caucus Members,'' Financial Innovation Caucus, accessed
April 11, 2025, https://www.lummis.senate.gov/financial-innovation-
caucus/.
---------------------------------------------------------------------------
SUMMARY OF PROVISIONS
S. 1492 would do the following:
Designate the Secretary of Commerce as the principal
advisor to the President on blockchain policy,
including deployment, applications, tokenization, and
U.S. competitiveness in the technology.
Establish a National Blockchain Deployment Advisory
Committee within 180 days, and require the Secretary to
appoint members, including representatives from Federal
agencies, industry, software development,
cybersecurity, academia, and nonprofit organizations.
Require the Secretary to develop and update a
compendium of best practices for secure, interoperable,
and efficient blockchain deployment, informed by
industry input and public engagement.
Encourage Federal agencies to assess and expand
their use of blockchain technology by examining current
adoption, identifying potential benefits, evaluating
readiness for deployment, and determining necessary
cybersecurity enhancements to protect critical
infrastructure and improve operational resilience.
Require annual public reports to Congress on the
Department of Commerce's blockchain-related activities,
policy recommendations, and emerging risks, with a
final report due before the Advisory Committee sunsets
in 7 years.
LEGISLATIVE HISTORY
S. 1492, the Deploying American Blockchains Act of 2025,
was introduced on April 10, 2025, by Senator Moreno (for
himself and Senators Blunt Rochester and Sheehy) and was
referred to the Committee on Commerce, Science, and
Transportation of the Senate. On April 30, 2025, the Committee
met in open Executive Session, and by voice vote, ordered S.
1492 reported favorably without amendment.
H.R. 1664, a House companion bill to S. 1492, was
introduced on February 27, 2025, by Representative Cammack (for
herself and Representative Soto) and was referred to the
Committee on Energy and Commerce of the House of
Representatives. On April 8, 2025, that Committee met in open
Executive Session, and by voice vote, ordered H.R. 1664
reported favorably without amendment. On June 23, 2025, H.R.
1664 passed the House, by voice vote, under suspension of the
rules.
118th Congress
H.R. 6572, the Deploying American Blockchains Act of 2023,
was introduced on December 4, 2023, by Representative Bucshon
(for himself and Representative Blunt Rochester) and was
referred to the Committee on Energy and Commerce of the House
of Representatives. On December 5, 2023, that Committee met in
open Executive Session and, by a recorded vote of 46-0, ordered
H.R. 6572 reported favorably with amendments. On May 15, 2024,
H.R. 6572 passed the House under suspension of the rules by a
recorded vote of 334-79.
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. 1492 would designate the Department of Commerce as the
primary adviser to the President for policies related to the
deployment, use, application, and competitiveness of blockchain
technology and applications. The bill also would require the
department to support U.S. leadership in blockchain technology,
develop policies and recommendations, examine benefits to
federal agencies, coordinate federal cybersecurity activities
related to blockchain technology, and work with the private
sector to identify ways to deploy the technology.
Using information from the department and based on the cost
of similar requirements, CBO estimates that implementing S.
1492 would cost $59 million over the 2025-2030 period. CBO
estimates that $46 million of that total would be for personnel
costs; other overhead costs would total $13 million. Any
related spending would be subject to the availability of
appropriations.
The costs of the legislation, detailed in Table 1, fall
within budget function 370 (commerce and housing credit).
TABLE 1.--ESTIMATED INCREASES IN SPENDING SUBJECT TO APPROPRIATION UNDER S. 1492
----------------------------------------------------------------------------------------------------------------
By fiscal year, millions of dollars--
----------------------------------------------------------------
2025 2026 2027 2028 2029 2030 2025-2030
----------------------------------------------------------------------------------------------------------------
Estimated Authorization........................ 0 8 14 13 13 14 62
Estimated Outlays.............................. 0 7 13 13 13 13 59
----------------------------------------------------------------------------------------------------------------
On June 27, 2025, CBO transmitted a cost estimate for H.R.
1664, the Deploying American Blockchains Act of 2025, as passed
by the House of Representatives on June 23, 2025. The two
pieces of legislation are similar, and CBO's estimates of their
budgetary effects are the same.
The CBO staff contact for this estimate is David Hughes.
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. 1492 would cover individuals with expertise in
blockchain and distributed ledger technologies. The Act would
not designate a maximum number of members for the National
Blockchain Deployment Advisory Committee, but it would
authorize the Secretary of Commerce to appoint a broad and
diverse group. Members could include representatives from
Federal agencies, infrastructure operators, application
developers, cybersecurity experts, industry stakeholders
(including small and medium-sized businesses), academia, think
tanks, nonprofit organizations, consumer groups, rural
stakeholders, and the content creator community. All members
would be appointed by the Secretary, who would also be a member
of the committee. Although the Act does not specify term
lengths, it would authorize the Advisory Committee to operate
for up to 7 years. Other individuals working in blockchain-
related sectors could be impacted by the bill through future
changes in Federal policy or best practices informed by the
Advisory Committee's recommendations and national coordination
efforts led by the Department of Commerce.
Economic Impact
S. 1492 may have a positive economic impact. The bill would
establish a National Blockchain Deployment Advisory Committee
to support U.S. leadership in blockchain technology, promote
coordination across Federal agencies, and engage with industry
to develop best practices. These efforts would aim to enhance
innovation, strengthen cybersecurity, and boost the global
competitiveness of U.S. blockchain applications.
Privacy
S. 1492 would have no impact on the personal privacy of
individuals and would not impose new requirements or grant
authorities that would affect the privacy of businesses. The
bill would focus on advisory functions, voluntary best
practices, and interagency coordination, and would not require
the collection or sharing of private data.
Paperwork
The Committee does not anticipate a major increase in
paperwork burdens resulting from the passage of this
legislation. In areas where additional paperwork may be
required, it would support the activities of the National
Blockchain Deployment Advisory Committee and the development of
best practices under section 3, which would be aimed at
enhancing U.S. leadership, security, and coordination in
blockchain technology. The bill would also require the
Department of Commerce to submit annual public reports to
Congress, which are expected to impose only a minimal
administrative burden.
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 ``Deploying American Blockchains Act of 2025''.
Section 2. Definitions.
This section would define the terms ``Advisory Committee'',
``blockchain technology or other distributed ledger
technology'', ``covered nongovernmental representative'',
``Secretary'', ``State'', ``token'', and ``tokenization''.
Section 3. Department of Commerce leadership on blockchain.
This section would position the Secretary of Commerce as
the principal advisor to the President on blockchain policy. It
would also direct the Secretary of Commerce to promote U.S.
leadership in the deployment, use, application, and
competitiveness of blockchain and distributed ledger
technology.
This section would require the Secretary to create a
National Blockchain Deployment Advisory Committee, including
public and private representatives, to develop best practices,
enhance security, and promote blockchain adoption across
sectors no later than 180 days after the date of enactment. It
would also encourage the Secretary to support coordination
among Federal agencies on blockchain technology development.
This section would require the Secretary to consult with
stakeholders, incorporate industry feedback, and collaborate
with the private sector to develop a compendium of proposals
for best practices in blockchain development.
This section would also clarify that it does not require
private entities to share information, request assistance,
implement recommendations, or adopt the compendium's best
practices.
Lastly, this section would specify that the advisory
committee shall terminate 7 years after the date of enactment
of the Act.
Section 4. Reports to Congress.
This section would direct the Secretary to deliver annual
reports on blockchain activities, risk, and legislative needs
not later than 2 years after enactment to the Committee on
Commerce, Science, and Transportation of the Senate and the
Committee on Energy and Commerce of the House of
Representatives.
Lastly, this section would require the Secretary, not later
than 18 months before the termination of the advisory
committee, to publish a publicly available final report
containing the findings, conclusions, and recommendations of
the Advisory Committee, as well as to deliver the report to the
President and to the appropriate committees of Congress.
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]