[Senate Report 119-9]
[From the U.S. Government Publishing Office]
Calendar No. 35
119th Congress } { Report
SENATE
1st Session } { 119-9
_______________________________________________________________________
STRENGTHENING SUPPORT FOR AMERICAN
MANUFACTURING ACT
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND
TRANSPORTATION
on
S. 99
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
March 31, 2025.--Ordered to be printed
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U.S. GOVERNMENT PUBLISHING OFFICE
59-010 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. 35
119th Congress } { Report
SENATE
1st Session } { 119-9
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STRENGTHENING SUPPORT FOR AMERICAN
MANUFACTURING ACT
_______
March 31, 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. 99]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 99) to require the Secretary of
Commerce to produce a report that provides recommendations to
improve the effectiveness, efficiency, and impact of Department
of Commerce programs related to supply chain resilience and
manufacturing and industrial innovation, 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. 99, Strengthening Support for American
Manufacturing Act, is to require the Secretary of Commerce to
produce a report that provides recommendations to improve the
effectiveness, efficiency, and impact of Department of Commerce
programs related to supply chain resilience and manufacturing
and industrial innovation, and for other purposes.
BACKGROUND AND NEEDS
While policymakers in the 2010s began raising concerns
around maintaining the United States' competitive edge,
especially through innovation in advanced manufacturing
technologies, the COVID-19 pandemic laid bare that U.S.
domestic manufacturing faces several challenges, including
heavy reliance on global supply chains, labor shortages, high
production costs, and outdated infrastructure. Congress has
acknowledged this reliance represents an economic security
liability for the country. Globalization and the drive to
provide low-priced goods to American consumers contributed to
offshoring beginning in the 1990s, making the United States
vulnerable to disruptions from events like pandemics or
geopolitical tensions.
Manufacturers in the United States account for a little
over 10 percent of U.S. gross domestic product (GDP), employing
about 12 million employees throughout the United States.\1\ In
2017, the Government Accountability Office released a report
identifying 58 programs across 11 different Federal agencies
that serve U.S. manufacturing, most housed within the
Department of Commerce. Senators have expressed concern that
the high number of programs may present a barrier to
manufacturers knowing about and accessing the resources these
programs provide.\2\
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\1\``2022 United States Manufacturing Facts,'' National Association
of Manufacturers (https://nam.org/state-manufacturing-data/2022-united-
states-manufacturing-facts/).
\2\U.S. Government Accountability Office, GAO 2017 Annual Report:
Additional Opportunities to Reduce Fragmentation, Overlap, and
Duplication and Achieve Other Financial Benefits, GAO-17-491SP, April
26, 2017 (https://www.gao.gov/products/gao-17-491sp).
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SUMMARY OF PROVISIONS
S. 99 would commission a report produced by the National
Academy of Public Administration (NAPA) that would do the
following:
Identify offices and bureaus of the Department of
Commerce with responsibilities related to critical
supply chain resilience and manufacturing and
industrial innovation.
Identify the duties, responsibilities, programs, and
expertise of these offices and bureaus.
Identify and assess the purpose, statutory
authority, effectiveness, efficiency, and limitations
of each covered office and bureau.
Identify gaps between offices with duplicative
duties, responsibilities, programs, and expertise.
Provide recommendations, including potential
legislative action, to improve the offices' and
bureaus' work and coordination with other offices.
LEGISLATIVE HISTORY
S. 99 was introduced on January 15, 2025, by Senator Peters
(for himself and Senator Blackburn) and was referred to the
Committee on Commerce, Science, and Transportation of the
Senate. On February 5, 2025, the Committee met in open
Executive Session and, by voice vote, ordered S. 99 reported
favorably without amendment.
118th Congress
S. 2116, the Strengthening Support for American
Manufacturing Act, was introduced on June 22, 2023, by Senator
Peters (for himself and Senator Blackburn) and was referred to
the Committee on Commerce, Science, and Transportation of the
Senate. On July 27, 2023, the Committee met in an open
Executive Session and, by voice vote, ordered S. 2116 reported
favorably with an amendment (in the nature of a substitute). On
April 30, 2024, S. 2116 passed the Senate with an amendment by
unanimous consent, and that bill was received in the House and
held at the desk on May 1, 2024.
H.R. 8657, a House companion bill to S. 2116, was
introduced on June 7, 2024, by Representative Higgins and was
referred to the Committee on Energy and Commerce of the House
of Representatives.
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]
Summary of legislation: On February 5, 2025, the Senate
Committee on Commerce, Science, and Transportation ordered
reported a total of 17 bills. This document provides estimates
for 5 of those bills.
S. 99, S. 195, and S. 245 would require the Department of
Commerce to study supply chains, promote music tourism, and
establish a working group on cyber insurance; S. 281 and S. 314
would direct the Federal Trade Commission (FTC) to enforce new
prohibitions related to ticket prices for live events and hotel
prices.
Estimated Federal cost: The estimated costs do not include
any effects of interactions among the bills. If all five bills
were combined and enacted as a single piece of legislation, the
estimated costs could be different from the sum of the separate
estimates, although CBO expects that any differences would be
small. The costs of the legislation fall within budget function
370 (commerce and housing credit).
Basis of estimate: For these estimates, CBO assumes that
the bills will be enacted near the middle of fiscal year 2025
and that the estimated amounts will be appropriated each year.
CBO estimates that all five bills would affect spending subject
to appropriation and that S. 281 and S. 314 would affect
revenues.
S. 99, Strengthening Support for American Manufacturing
Act, would require the Department of Commerce to contract with
the National Academy of Public Administration to study programs
operated by the department that aim to improve the resilience
of critical supply chains and provide technical assistance to
U.S. manufacturers. The report would identify interagency gaps
and duplicative responsibilities among offices and recommend
improvements.
Using information from the Department of Commerce, CBO
estimates that completing the study would cost $2 million over
the 2025-2030 period, including employee and contracting costs.
Any related spending would be subject to the availability of
appropriated funds.
S. 195, American Music Tourism Act of 2025, would require
the Assistant Secretary of Commerce for Travel and Tourism to
promote music tourism in the United States and periodically
report to the Congress. In 2024, the Assistant Secretary
received $3.5 million to carry out the requirements of the
Visit America Act, a 2022 law to promote travel and tourism in
the United States.
Using information about the Assistant Secretary's
responsibilities under current law, CBO estimates that
implementing the requirements in the bill would cost less than
$500,000 over the 2025-2030 period. Any related spending would
be subject to the availability of appropriated funds.
S. 245, Insure Cybersecurity Act of 2025, would require the
National Telecommunications and Information Administration to
establish an interagency working group on cyber insurance,
composed of members from the Cybersecurity and Infrastructure
Security Agency, Department of Justice, Department of the
Treasury, National Institute of Standards and Technology, and
the FTC. The working group would be required to report to the
Congress no later than one year after it forms.
Using information about the cost of similar working groups,
CBO estimates that implementing the bill would cost less than
$500,000 over the 2025-2026 period. Any related spending would
be subject to the availability of appropriated funds.
S. 281, TICKET Act, would require companies that issue
tickets or that sell tickets on the secondary market to clearly
display the total price of any ticket, including itemizing any
fees not included in the base ticket price. The bill also would
prohibit entities from offering or advertising tickets that
they do not possess, require entities to clearly disclose if a
ticket is for re-sale, and direct ticket sellers to refund
buyers if an event is cancelled. Those requirements would apply
to live events at venues with an attendance capacity of 200
people or more. The FTC would enforce those requirements.
Based on the cost of similar provisions, CBO estimates
implementing the bill would cost the FTC $4 million over the
2025-2030 period to issue guidance and to monitor and enforce
violations. Any related spending would be subject to the
availability of appropriated funds. In addition, CBO estimates
that enacting the bill could increase civil penalty
collections, which are recorded in the budget as revenues, by
an insignificant amount.
S. 314, Hotel Fees Transparency Act of 2025, would require
providers of short-term lodging and websites that advertise or
offer such lodging to display upfront the full lodging price
and each mandatory fee required to complete a booking. The FTC
would enforce those requirements.
Based on the cost of similar provisions, CBO estimates
implementing the bill would cost the FTC $4 million over the
2025-2030 period to issue guidance and to monitor and enforce
violations. Any related spending would be subject to the
availability of appropriated funds. In addition, CBO estimates
that enacting the bill could increase civil penalty
collections, which are recorded in the budget as revenues, by
an insignificant amount.
Pay-As-You-Go considerations: CBO estimates that enacting
S. 281 and S. 314 would each increase revenues by less than
$500,000 over the 2025-2035 period; therefore, pay-as-you-go
procedures apply to those bills.
Increase in long-term net direct spending and deficits: CBO
estimates that none of the bills would increase net direct
spending or deficits in any of the four consecutive 10-year
periods beginning in 2036.
Mandates: Two of the bills ordered reported by the
committee contain mandates, as defined in the Unfunded Mandates
Reform Act (UMRA).
S. 281, TICKET Act, would impose private-sector mandates as
defined in UMRA on ticket sellers and resellers by requiring
certain changes, including new refund policies to the ticketing
process. CBO estimates the aggregate cost to comply with the
mandates would be above the threshold established in UMRA for
private-sector mandates ($206 million in 2025, adjusted
annually for inflation).
Under the bill, if an event is cancelled, ticket sellers
and resellers would be required to provide a refund of the full
ticket price, including taxes and fees, to ticket purchasers.
If an event is postponed, sellers and resellers would be
required to provide customers either a full refund or a
replacement ticket, if available, subject to the customer's
preference. Sellers also would be required to disclose this
refund policy. The bill allows for exceptions to this policy in
cases where the cancellation or postponement is beyond the
control of the ticker issuer, such as natural disasters. Based
on discussions with industry sources, a substantial share of
sellers and resellers already provide full refunds for
cancelled events but few offer refunds for postponed events.
Considerable uncertainty surrounds the ways that federal
regulations might define what is within the control of the
issuer in the event of a cancellation or postponement or what
might constitute comparable replacement events. Given the large
size of the industry and the amount of revenue generated by
ticketed events, CBO estimates that the cost of this mandate
would exceed the threshold for private-sector mandates.
S. 281 also would require ticket sellers and resellers to
make certain up-front disclosures to consumers. They would need
to disclose the ticket prices, including taxes and fees. Those
disclosures would occur at the time a ticket is first displayed
to a consumer and in any advertisements or marketing. The bill
also would require ticket sellers and resellers to provide an
itemized list of the base price and all fees. Information from
industry sources indicates that most ticket sellers have
already begun to provide the total cost to consumers in
advance; thus, CBO expects the additional requirements in the
bill to have small costs.
The bill also would require ticket resellers to disclose to
consumers that they are resellers before any purchase is
complete. Sellers and resellers would be prohibited from
selling or advertising any ticket that the seller does not have
actually or constructively possess. In certain instances,
sellers also would be prohibited from revealing to consumers
and using the name of venues, teams, artists, and events in
their online domain names. CBO expects that those disclosures
and prohibitions would impose minimal costs on the sellers.
The bill contains no intergovernmental mandates as defined
in UMRA.
S. 314, Hotel Fees Transparency Act of 2025, would impose
intergovernmental and private-sector mandates as defined in
UMRA. CBO estimates that the cost to comply with those mandates
would not exceed thresholds established in UMRA ($103 million
and $206 million in 2025, respectively, adjusted annually for
inflation).
The bill would preempt state and local laws governing the
display of prices for short-term lodging. Although the
preemptions would limit the application of state and local
laws, it would impose no duty on state or local governments
that would result in significant spending or loss of revenues.
The bill would require hotels, short-term rentals, online
booking websites, and any other third-party temporary
accommodation sellers to disclose upfront the total price of
lodging, including any government-imposed fees. Information
from industry sources and the FTC indicates that several
lodging providers already comply with provisions in the bill.
In addition, an FTC final rule, set to go into effect in April,
will require short-term lodging sellers to disclose all
associated fees to customers. CBO expects the cost for other
entities to comply would be small because many providers
already comply and those who do not already possess the fee
information required to be displayed.
Estimate prepared by: Federal costs and revenues: David
Hughes; Mandates: Grace Watson and Rachel Austin.
Estimate reviewed by: Justin Humphrey, Chief, Finance,
Housing, and Education Cost Estimates Unit; Kathleen
FitzGerald, Chief, Public and Private Mandates Unit; H. Samuel
Papenfuss, Deputy Director of Budget Analysis.
Estimate approved by: 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. 99, as reported, would not create any new programs or
impose any new regulatory requirements, and, therefore, would
not subject any individuals or businesses to new regulations.
Economic Impact
S. 99, as reported, is not expected to have a negative
impact on the Nation's economy.
Privacy
S. 99, as reported, would have no impact on the personal
privacy of individuals.
Paperwork
The legislation would not increase paperwork requirements
for private individuals or businesses. The bill would require
one report from the Federal Government. The report would be
from the Secretary of the Department of Commerce, contracted
through NAPA, within 1 year after the enactment of this
legislation, on recommendations to improve the effectiveness,
efficiency, and impact of the offices and bureaus of the
Department of Commerce with responsibilities related to
critical supply chain resilience and manufacturing industrial
innovation. Within 180 days after the Secretary produces the
report, the Secretary shall submit the report, along with
recommendations for potential legislative action, to the
Committee on Commerce, Science, and Transportation of the
Senate and the Committee on Energy and Commerce of the House of
Representatives.
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 ``Strengthening Support for American Manufacturing Act''.
Section 2. Definitions
This section would define the terms, ``appropriate
committees of Congress'', ``covered offices and bureaus'',
``critical supply chain'', ``critical supply chain
resilience'', ``manufacturing and industrial innovation'', and
``Secretary''.
Section 3. Study relating to manufacturing programs of the Department
of Commerce
This section would require NAPA, through a contract with
the Secretary of Commerce's office, to produce a report that
would identify offices and bureaus of the Department of
Commerce engaged in issues related to critical supply chain
resilience and manufacturing, and outline recommendations to
improve those offices' and bureaus' effectiveness.
No later than 180 days after the Secretary of Commerce
produces the report, the Secretary would be required to submit
the report, along with recommendations for potential
legislative action, to the Senate Committee on Commerce,
Science, and Transportation and the House Committee on Energy
and Commerce.
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]