Research Investment to Spark the Economy Act of 2020
Summary
Senate Report 116–332, Calendar No. 639, is the report of the Committee on Commerce, Science, and Transportation, submitted by Mr. Wicker and ordered to be printed December 15, 2020, on S. 4286, the Research Investment to Spark the Economy Act of 2020. The Committee reports favorably with an amendment in the nature of a substitute the bill to authorize appropriations for offsetting the costs related to reductions in research productivity resulting from the coronavirus pandemic. The report states that the bill's purpose is to authorize several departments and agencies, including the National Aeronautics and Space Administration, the National Science Foundation and the Environmental Protection Agency, to provide support for research regarding or disrupted by the pandemic.
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“Research Investment to Spark the Economy Act of 2020.”
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Calendar No. 639
116TH CONGRESS REPORT
" SENATE !
2d Session 116–332
RESEARCH INVESTMENT TO SPARK THE
ECONOMY ACT OF 2020
R E P O R T
OF THE
COMMITTEE ON COMMERCE, SCIENCE, AND
TRANSPORTATION
ON
S. 4286
DECEMBER 15, 2020.—Ordered to be printed
U.S. GOVERNMENT PUBLISHING OFFICE
19–010 WASHINGTON : 2020
E:\Seals\Congress.#13
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SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
ONE HUNDRED SIXTEENTH CONGRESS
SECOND SESSION
ROGER F. WICKER, Mississippi, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington
ROY BLUNT, Missouri AMY KLOBUCHAR, Minnesota
TED CRUZ, Texas RICHARD BLUMENTHAL, Connecticut
DEB FISCHER, Nebraska BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska TOM UDALL, New Mexico
CORY GARDNER, Colorado GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee TAMMY BALDWIN, Wisconsin
SHELLEY MOORE CAPITO, West Virginia TAMMY DUCKWORTH, Illinois
MIKE LEE, Utah JON TESTER, Montana
RON JOHNSON, Wisconsin KYRSTEN SINEMA, Arizona
TODD C. YOUNG, Indiana JACKY ROSEN, Nevada
RICK SCOTT, Florida
JOHN KEAST, Staff Director
DAVID STRICKLAND, Minority Staff Director
(II)
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Calendar No. 639
116TH CONGRESS REPORT
" SENATE !
2d Session 116–332
RESEARCH INVESTMENT TO SPARK THE ECONOMY ACT
OF 2020
DECEMBER 15, 2020.—Ordered to be printed
Mr. WICKER, from the Committee on Commerce, Science, and
Transportation, submitted the following
R E P O R T
[To accompany S. 4286]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 4286) to authorize appropriations for
offsetting the costs related to reductions in research productivity
resulting from the coronavirus pandemic, 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
This bill would authorize the Departments of Agriculture, Com-
merce, Defense, Education, Energy, Interior, Health and Human
Services, and Transportation and the National Aeronautics and
Space Administration, National Science Foundation, and Environ-
mental Protection Agency to provide support for research regarding
or disrupted by the 2019 coronavirus (COVID–19) pandemic.
BACKGROUND AND NEEDS
Research and the U.S. Economy
U.S. investment in research and innovation has enabled the
United States to become the strongest economy in the world.1 More
than half of the economic growth in the United States during the
first half of the 20th century was due to technological advance-
1 Walter Isaacson, ‘‘How America Risks Losing Its Innovation Edge,’’ Time, Jan. 3, 2019
(https://time.com/longform/america-innovation/) (accessed Nov. 6, 2020).
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2
ments.2 A primary driver of future economies and job creation will
be innovation that is made possible through advances in science
and engineering.3 In the 20th century, basic research funded by the
Federal Government in areas from genomics to engineering have
enabled entirely new industries. From the Manhattan Project dur-
ing World War II to today’s advances in the global positioning sys-
tem (GPS), scientific discovery has allowed the United States to
maintain a strategic advantage in times of war. While the United
States has long retained its competitive advantage in research and
development (R&D) spending, experts believe that China surpassed
the United States in terms of R&D investment in 2019.4 China’s
annual R&D growth rate is three times higher than that of the
United States.5
Federal Research and Development Enterprise
The Federal R&D enterprise includes Government facilities and
employees and federally funded work in the private, nonprofit, and
academic sectors. In fiscal year (FY) 2019, $141.5 billion of Federal
funds were obligated for R&D, $39.6 billion for intramural and
$101.9 billion for extramural R&D.6 The United States’ R&D enter-
prise has helped America become the global leader in innovation,
while simultaneously strengthening the health of its citizens, na-
tional security, and economy. The Institute for Research on Innova-
tion and Science (IRIS) estimates that American university re-
search spending alone contributed to nearly $14 billion in direct
cost research dollars towards goods and services in all 435 congres-
sional districts from FY 2018 to FY 2019.7
Impacts of COVID–19 on Federal R&D
Throughout 2020, the United States implemented a number of
measures to stop the spread of a contagious and deadly
coronavirus, SARS–CoV–2 (COVID–19). One of those measures was
the implementation of social distancing requirements, limiting
close contact between individuals to reduce the risk of spreading
the virus. Because of social distancing requirements, many Federal
and non-Federal institutions closed their facilities. While many of
these institutions transitioned to a telework environment, not all
R&D operations have been able to make this transition, as some
R&D activities require physical access to facilities and equipment.
This has led many federally funded R&D organizations to stop or
significantly reduce operations.8
2 Robert M. Solow, ‘‘Technical Change and the Aggregate Production Function,’’ The Review
of Economics and Statistics, 39: No. 3, 312–320, Aug. 1957.
3 Dr. Charles M. Vest, Rising Above the Gathering Storm Revisited: Rapidly Approaching Cat-
egory 5, National Academy of Sciences, 2010.
4 Andrea Widener, ‘‘China May Have Pulled Ahead of US in Race for Top Spot in Global
Science R&D,’’ C&EN, Jan. 15, 2020 (https://cen.acs.org/policy/research-funding/China-pulled-
ahead-US-race/98/i3) (accessed Nov. 6, 2020).
5 Ibid.
6 National Science Foundation, ‘‘Survey of Federal Funds for Research and Development: Fis-
cal Years 2018–19,’’ Table 2, Feb. 2021 (https://ncsesdata.nsf.gov/fedfunds/2018/) (accessed Nov.
6, 2020).
7 Institute for Research on Innovation and Science, ‘‘The Impact of American University Re-
search Spending,’’ Apr. 2020 (https://iris.isr.umich.edu/wp-content/uploads/2020/04/
IRISresearchspendingfactsheet4-20_final.pdf) (accessed Nov. 6, 2020).
8 Daniel Morgan and John Sargent Jr, Effects of COVID–19 on the Federal Research and De-
velopment Enterprise, CRS Report R46309 (https://crsreports.congress.gov/product/pdf/R/R46309)
(accessed Nov. 6, 2020).
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3
For the R&D operations that have not stopped, researchers and
associated staff may be confronted with other challenges: reduced
efficiency and quality of work, additional cost for materials, and
shifts in the focus of R&D.9 Social distancing requirements have re-
quired some research teams to implement staggered shift sched-
ules, reducing the ability of teams to collaborate, and may require
additional time to clean down stations between shifts.10 Projects
may also be stalled by disruptions to the supply of materials and
equipment or by closures at collaborating research institutions.
Continuing operations may also come with extra costs, requiring
institutions to purchase additional computing and networking
equipment and services to accommodate researchers working re-
motely.11 Institutions have had to purchase additional personal
protective equipment at higher costs to replenish supplies that
were donated to hospitals and first responders or to meet new lab
safety requirements.11 Institutions have also faced increased prices
for materials and equipment that are in short supply due to dis-
turbances in supply chains or heightened demand.12
Because impacts of COVID–19 on federally funded R&D have
varied across institutions, geographic locations, and scientific dis-
ciplines, it is difficult to estimate research output losses nation-
wide. Closures and social distancing requirements are at the dis-
cretion of individual agencies and research institutions and State
and local policies, not based on national policies. Additionally, de-
pending on the nature or stage of a project, some researchers have
been able to continue to make progress remotely.14 For example,
researchers may be able to perform scientific computations or mod-
eling and simulations while teleworking, or shift to analyzing data
and preparing results for submission to scientific journals.15 In con-
trast, some research requiring the handling of samples, operation
of specialized equipment, or field work has not progressed. This sit-
9 Ibid.
10 Ibid; Kelly Servick et al., ‘‘Labs Go Quiet as Researchers Brace for Long Term Coronavirus
Disruptions,’’ Science, Mar. 16, 2020 (https://www.sciencemag.org/news/2020/03/updated-labs-go-
quiet-researchers-brace-long-term-coronavirus-disruptions) (accessed Nov. 6, 2020); Justin Chen,
‘‘COVID–19 Has Shuttered Scientific Labs. It Could Put a Generation of Researchers at Risk,’’
STAT, May 4, 2020 (https://www.statnews.com/2020/05/04/coronavirus-lab-shutdowns-impact-on-
scientists-research-delays/) (accessed Nov. 6, 2020).
11 Council on Governmental Relations, Research Impact Under COVID–19: Financial Crisis
and the ‘‘Pandemic Normal,’’ Aug. 2020 (https://www.cogr.edu/sites/default/files/
Research_COVID_August2020_COGR_FINAL.pdf) (accessed Nov. 6, 2020); prepared statement
of Dr. Joseph Walsh, Interim Vice President for Economic Development and Innovation, sub-
mitted to the Committee on Science, Space, and Technology, Subcommittee on Research and
Technology of the House of Representatives, for hearing on ‘‘Time Change: The Impact of the
COVID–19 Crisis on University Research,’’ 116th Cong., 2nd sess., Sep. 9, 2020 (https://
science.house.gov/imo/media/doc/Walsh%20Testimony.pdf) (accessed Nov. 6, 2020).
12 Ibid.
13 Daniella Diaz et al., ‘‘Protective Equipment Costs Increase Over 1,000% Amid Competition
and Surge in Demand,’’ Cable News Network, Apr. 16, 2020 (https://www.cnn.com/2020/04/16/
politics/ppe-price-costs-rising-economy-personal-protective-equipment/index.html) (accessed Nov.
6, 2020).
14 Prepared statement of Dr. David Stone, Vice President for Research, submitted to the Com-
mittee on Science, Space, and Technology, Subcommittee on Research and Technology, of the
House of Representatives, for hearing on ‘‘Time Change: The Impact of the COVID–19 Crisis
on University Research,’’ 116th Cong., 2nd sess., Sep. 9, 2020 (https://science.house.gov/imo/
media/doc/Stone%20Testimony.pdf) (accessed Nov. 6, 2020).
15 Prepared statement of Dr. Joseph Walsh, Interim Vice President for Economic Development
and Innovation, submitted to the Committee on Science, Space, and Technology, Subcommittee
on Research and Technology, of the House of Representatives, for hearing on ‘‘Time Change: The
Impact of the COVID–19 Crisis on University Research,’’ 116th Cong., 2nd sess., Sep. 9, 2020
(https://science.house.gov/imo/media/doc/Walsh%20Testimony.pdf) (accessed Nov. 6, 2020).
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4
uation is unlikely to change until social distancing requirements
are lifted.16
The Council on Governmental Relations (CGR) has designed a
model to estimate the impacts of COVID–19 on the U.S. research
enterprise.17 From five case studies, the model showed that pro-
jected research output losses from March 2020 to February 2021
are between 20 and 40 percent.18 These results suggest that finan-
cial disinvestment impact may be in the hundreds of millions of
dollars at individual institutions, and tens of billions of dollars
across the research enterprise.19 These results are consistent with
the testimony provided by the Director of the National Institute of
Health (NIH) during a Senate Health Education Labor and Pen-
sions Committee hearing, where he estimated that $10 billion of
NIH funded-research (a quarter of its annual budget) is at risk of
being eliminated because of the virus and its impacts on oper-
ations.20
As highlighted by the CGR’s report, a reduction of this mag-
nitude in research output could have severe implications for the
Nation’s R&D enterprise. It could prevent institutions from achiev-
ing research goals and may even result in the loss of entire re-
search programs. It could significantly slow down discoveries and
technology development, subsequently decreasing the quantity and
quality of U.S. research. It could also result in the loss of a genera-
tion of trained scientists and engineers. University research typi-
cally involves postdoctoral researchers and graduate and under-
graduate students. Although some research projects have been al-
lowed to continue despite COVID–19, many universities are lim-
iting the participation of post-doctoral researchers and students.
Failing to complete a project on time or participate in the research
may delay the completion of a degree or make it difficult to find
employment.21 The loss of early career professionals and students
could have a severe impact on future workforce needs of the Fed-
eral, private, nonprofit, and academic R&D sectors.22
16 Prepared statement of Dr. David Stone, Vice President for Research, submitted to the Com-
mittee on Science, Space, and Technology, Subcommittee on Research and Technology, of the
House of Representatives, for hearing on ‘‘Time Change: The Impact of the COVID–19 Crisis
on University Research,’’ 116th Cong., 2nd sess., Sep. 9, 2020 (https://science.house.gov/imo/
media/doc/Stone%20Testimony.pdf) (accessed Nov. 6, 2020); prepared statement of Dr. Joseph
Walsh, Interim Vice President for Economic Development and Innovation, submitted to the
Committee on Science, Space, and Technology, Subcommittee on Research and Technology, of
the House of Representatives, for hearing on ‘‘Time Change: The Impact of the COVID–19 Crisis
on University Research,’’ 116th Cong., 2nd sess., Sep. 9, 2020 (https://science.house.gov/imo/
media/doc/Walsh%20Testimony.pdf) (accessed Nov. 6, 2020).
17 Council on Governmental Relations, Research Impact Under COVID–19: Financial Crisis
and the ‘‘Pandemic Normal,’’ Aug. 2020 (https://www.cogr.edu/sites/default/files/Re-
search_COVID_August2020_COGR_FINAL.pdf) (accessed Nov. 6, 2020).
18 Ibid.
19 Ibid.
20 Jeannie Baumann, ‘‘Virus Will Cost NIH $10 Billion in Lost Research, Director Warns,’’
Bloomberg Law (https://www.researchamerica.org/news-events/virus-will-cost-nih-10-billion-lost-
research-director-warns) (accessed Nov. 6, 2020).
21 Prepared statement of Dr. Joseph Walsh, Interim Vice President for Economic Development
and Innovation, submitted to the Committee on Science, Space, and Technology, Subcommittee
on Research and Technology, of the House of Representatives, for hearing on ‘‘Time Change: The
Impact of the COVID–19 Crisis on University Research,’’ 116th Cong., 2nd sess., Sep. 9, 2020
(https://science.house.gov/imo/media/doc/Walsh%20Testimony.pdf) (accessed Nov. 6, 2020).
22 Council on Governmental Relations, Research Impact Under COVID–19: Financial Crisis
and the ‘‘Pandemic Normal,’’ Aug. 2020 (https://www.cogr.edu/sites/default/files/
Research_COVID_August2020_COGR_FINAL.pdf) (accessed Nov. 6, 2020); Justin Chen,
‘‘COVID–19 has Shuttered Scientific Labs. It Could Put a Generation of Researchers at Risk,’’
STAT, May 4, 2020 (https://www.statnews.com/2020/05/04/coronavirus-lab-shutdowns-impact-on-
scientists-research-delays/) (accessed Nov. 6, 2020).
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5
Federal Action Taken and Proposed
Since March, the Federal Government has taken legislative and
administrative action to support the Federal R&D enterprise. On
March 6, 2020, the Coronavirus Preparedness and Response Sup-
plemental Appropriations Act, 2020 23 was enacted, appropriating
$836 million in supplemental funding for NIH, with additional
transferable amounts from other accounts. On March 9, 2020, the
Office of Management and Budget (OMB) authorized Federal agen-
cies to provide various short-term relief from administrative, finan-
cial management, and auditing requirements for grantees involved
in research related to COVID–19.24 Following a request from four
research and university organizations,25 OMB expanded the scope
of these provisions to apply to Federal grantee recipients affected
by COVID–19.26 This has allowed Federal science agencies to pro-
vide existing awardees no-cost extensions of awards, extensions of
financial and reporting deadlines, changes to cancellation fees and
costs associated with pausing and restarting research, and contin-
ued payment of salaries and benefits out of grant funds.27 These
flexibilities have since expired, with the exception of a few provi-
sions set to expire on December 31, 2020.28 On March 27, 2020, the
Coronavirus Aid, Relief, and Economic Security (CARES) Act 29 ap-
propriated more than $1 billion in supplemental funding for R&D,
$945 million of which went to NIH.
Given the severity of the impact of COVID–19 on the U.S. re-
search enterprise, on April 7, 2020, a coalition of four major U.S.
university associations sent a letter to Congress advocating for an
additional $26 billion across major Federal science agencies for ex-
tramural research.30 The coalition highlights that while COVID–19
related-research is ‘‘in overdrive, most other research has been
slowed down or stopped due to pandemic-induced closures of cam-
puses and laboratories.’’ 31 The funding proposed by the coalition
would be used to extend the duration, and if necessary, expand the
purpose of existing grants.32 Additionally, the funds would be used
23 Public Law 116–123.
24 Office of Management and Budget, ‘‘Administrative Relief for Recipients and Applicants of
Federal Financial Assistance Directly Impacted by the Novel Coronavirus (COVID–19),’’ Memo-
randum M–20–11, Mar. 9, 2020 (https://www.whitehouse.gov/wp-content/uploads/2020/03/M-20-
11.pdf) (accessed Nov. 6, 2020).
25 Letter from Association of American Universities, Council on Government Relations, Asso-
ciation of Public and Land-Grant Universities, and Association of American Medical Colleges,
to OMB, Mar. 18, 2020 (https://www.cogr.edu/sites/default/files/Joint%20Association%20
Letter%20to%20OMB%20On%20M-20-11%20Expansion.pdf) (accessed Nov. 6, 2020).
26 Office of Management and Budget, Administrative Relief for Recipients and Applicants of
Federal Financial Assistance Directly Impacted by the Novel Coronavirus (COVID–19) Due to
Loss of Operations, Memorandum M–20–17, Mar. 19, 2020 (https://www.whitehouse.gov/wp-
content/uploads/2020/03/M-20-17.pdf) (accessed Nov. 6, 2020).
27 Ibid.
28 Office of Management and Budget, Extension of Administrative Relief for Recipients and ap-
plicants of Federal Financial Assistance Directly Impacted by the Novel Coronavirus (COVID–
19) Due to Loss of Operations, Memorandum M–20–26, Jun. 18, 2020 (https://
www.whitehouse.gov/wp-content/uploads/2020/06/M-20-26.pdf) (accessed Nov. 6, 2020).
29 Public Law 116–136.
30 Letter from Association of American Universities, Association of Public and Land-Grant
Universities, and Association of American Medical Colleges, American Council on Education, to
Hon. Nancy Pelosi, Speaker of the U.S. House of Representatives; Hon. Kevin McCarthy, Minor-
ity Leader of the U.S. House of Representatives; Hon. Mitch McConnell, U.S. Senate Majority
Leader; and Hon. Charles Schumer, U.S. Senate Minority Leader, Apr. 7, 2020 (https://
www.aplu.org/members/councils/governmental-affairs/CGA-library/higher-ed-community-phase-
iv-research-priorities/file) (accessed Nov. 6, 2020).
31 Ibid.
32 Ibid.
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to offset costs associated with delays and increased costs of goods
and services incurred by grant recipients as a result of the pan-
demic. The coalition petitions that without additional support to
non-pandemic research, ‘‘the future health and strength of the U.S.
research enterprise, are at risk.’’ 33
SUMMARY OF PROVISIONS
If enacted, S. 4286, the Research Investment to Spark the Econ-
omy Act, would do the following:
• Provide supplemental funding to extend the duration or ex-
pand the purposes of an award to a research institution, re-
search laboratory, or individual that was disrupted because of
the COVID–19 public health emergency and was awarded prior
to the enactment of this bill.
• Provide flexibility on the use of funds for an award disrupted
because of the COVID–19 public health emergency, by any
prior or subsequent Act, including provision of supplemental
funding to extend the duration of the award concerned or flexi-
bility on the allowable expenses under such award.
• Permit issuance of additional awards to research institutions,
research laboratories, or other individuals to conduct research
on the effects of COVID–19 and future potential pandemics.
LEGISLATIVE HISTORY
S. 4286 was introduced on July 22, 2020, by Senator Markey (for
himself and Senators Tillis, Peters, and Gardner) and was referred
to the Committee on Commerce, Science, and Transportation of the
Senate. Senators Warren and Collins are additional cosponsors. On
September 16, 2020, the Committee met in open Executive Session
and, by voice vote, ordered that S. 4286 be reported favorably with
an amendment (in the nature of a substitute).
A related bill, H.R. 7308, the Research Investment to Spark the
Economy Act or RISE Act, was introduced on June 24, 2020, by
Representative DeGette (for herself and Representatives Upton,
Johnson [D–TX–30], Lucas, Eshoo, and Gonzalez [R–OH–16]) and
was referred to the Committees on Science, Space, and Technology,
Agriculture, Armed Services, Education and Labor, Energy and
Commerce, and Natural Resources in the House of Representatives.
There are an additional 136 cosponsors. On July 14, 2020, H.R.
7308 was referred to the Subcommittee on Water, Oceans, and
Wildlife of the Committee on Natural Resources of the House of
Representatives.
ESTIMATED COSTS
In compliance with subsection (a)(3) of paragraph 11 of rule
XXVI of the Standing Rules of the Senate, the Committee states
that, in its opinion, it is necessary to dispense with the require-
ments of paragraphs (1) and (2) of that subsection in order to expe-
dite the business of the Senate.
33 Ibid.
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REGULATORY IMPACT STATEMENT
In accordance with paragraph 11(b) of rule XXVI of the Standing
Rules of the Senate, the Committee provides the following evalua-
tion of the regulatory impact of the legislation, as reported:
Number of Persons Covered
S. 4286 would not impose any new significant regulatory require-
ments, and, therefore, would not subject any individuals or busi-
nesses to new significant regulations.
Economic Impact
S. 4286 is not expected to have any significant adverse impacts
on the Nation’s economy. It will likely have a positive impact by
supplementing R&D activities that stimulate the economy.
Privacy
S. 4286 would not have any adverse impact on the privacy of in-
dividuals.
Paperwork
S. 4286 would not impose a substantial paperwork burden on in-
dividuals or 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 congres-
sionally 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 ‘‘Re-
search Investment to Spark the Economy Act of 2020’’ or the ‘‘RISE
Act of 2020’’.
Section 2. Findings.
This section would provide congressional findings regarding the
impact of COVID–19 on Federal research awardees and the need
for further congressional action.
Section 3. Award and modification of grants, cooperative agree-
ments and other financial assistance for institutions of higher
education, research laboratories, and other research institutions
to address matters relating to disruption caused by COVID–19.
This section would define the terms ‘‘award’’, ‘‘COVID–19 public
health emergency’’, ‘‘research institution’’, and ‘‘research labora-
tory’’ referenced in this section. This section would designate agen-
cies that may exercise authorities listed in this section for awards
issued to research institutions, research laboratories, or other indi-
viduals disrupted by the COVID–19 public health emergency.
These authorities include providing supplemental funding to ex-
tend the duration or expand the purpose of an award and providing
various flexibilities on allowable expenses under such an award.
Additionally, agency officers would be allowed to issue awards to
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8
eligible entities to conduct research on the effects of COVID–19 and
future potential pandemics. This section would mandate that each
eligible Federal science agency that receives funds must develop
procedures to award supplemental funds as expeditiously as pos-
sible. This section would provide authorizations of appropriations
to Federal science agencies to carry out the purposes of this Act.
This section would also provide rules on the availability of appro-
priated funds for administration of applicable awards and allow
funds to be available for use though fiscal year 2021.
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.
Æ
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