U.S. GOVERNMENT PUBLISHING OFFICE

WASHINGTON : 

1 

79–010 

" ! SENATE 115TH CONGRESS

1st Session 

REPORT 

2017

115–188 

NO HUMAN TRAFFICKING ON OUR ROADS 

ACT 

R E P O R T 

OF THE

COMMITTEE ON COMMERCE, SCIENCE, AND 

TRANSPORTATION 

ON

S. 1532 

November 30, 2017.—Ordered to be printed 


E:\Seals\Congress.#13
(II) 

SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION 

ONE HUNDRED FIFTEENTH CONGRESS

FIRST SESSION

JOHN THUNE, South Dakota, Chairman 

ROGER F. WICKER, Mississippi BILL NELSON, Florida 

ROY BLUNT, Missouri MARIA CANTWELL, Washington 

TED CRUZ, Texas AMY KLOBUCHAR, Minnesota 

DEB FISCHER, Nebraska RICHARD BLUMENTHAL, Connecticut 

JERRY MORAN, Kansas BRIAN SCHATZ, Hawaii 

DAN SULLIVAN, Alaska EDWARD J. MARKEY, Massachusetts 

DEAN HELLER, Nevada CORY A. BOOKER, New Jersey 

JAMES M. INHOFE, Oklahoma TOM UDALL, New Mexico 

MIKE LEE, Utah GARY C. PETERS, Michigan 

RON JOHNSON, Wisconsin TAMMY BALDWIN, Wisconsin 

SHELLEY MOORE CAPITO, West Virginia TAMMY DUCKWORTH, Illinois 

CORY GARDNER, Colorado MARGARET WOOD HASSAN, New Hampshire 

TODD C. YOUNG, Indiana CATHERINE CORTEZ MASTO, Nevada 

NICK ROSSI, Staff Director 

ADRIAN ARNAKIS, Deputy Staff Director 

JASON VAN BEEK, General Counsel 

KIM LIPSKY, Democratic Staff Director 

CHRISTOPHER DAY, Democratic Deputy Staff Director 

115TH CONGRESS REPORT " ! SENATE 1st Session 115–188 

NO HUMAN TRAFFICKING ON OUR ROADS ACT 

NOVEMBER 30, 2017.—Ordered to be printed 

Mr. THUNE, from the Committee on Commerce, Science, and 

Transportation, submitted the following 

R E P O R T 

[To accompany S. 1532] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on Commerce, Science, and Transportation, to 

which was referred the bill (S. 1532) to disqualify from operating 

a commercial motor vehicle for life an individual who uses a commercial motor vehicle in committing a felony involving human trafficking, having considered the same, reports favorably thereon 

without amendment and recommends that the bill do pass. 

PURPOSE OF THE BILL

The purpose of S. 1532, the No Human Trafficking on Our Roads 

Act, would provide a lifetime ban from operating a commercial 

motor vehicle (CMV) for an individual who uses a CMV in committing a felony involving a severe form of trafficking in persons. 

BACKGROUND AND NEEDS

Current law prohibits an individual from operating a CMV if the 

individual is convicted of any of nine different enumerated offenses, 

including alcohol abuse, negligent manslaughter, and drug trafficking. The proposed legislation would add a felony involving a severe form of trafficking in persons to the list of disqualifying offenses, and like a controlled substance violation (49 U.S.C. 31310 

(d)), the disqualification would be for life. 

Human trafficking, particularly sex trafficking, is known to be 

present at commercially operated truck stops and State-operated 

rest areas throughout the United States. Given their remoteness 

and insulation from communities, these locations can be a convenient place for sex traffickers to operate with minimal concerns for 

detection. The frequent movement of victims aids traffickers both 

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in maintaining control of the victims and avoiding law enforcement. For example, victims who work in fake massage businesses 

are often rotated between cities so they do not establish relationships and seek help. Other forms of human trafficking, such as 

labor trafficking, have a presence in the trucking industry as well. 

Nonprofit organizations like Truckers Against Trafficking (TAT) 

have made substantial progress in spreading awareness of areas 

where human trafficking and the trucking industry intersect. Their 

efforts have resulted in increased reporting of trafficking incidents 

by truckers, the eyes and ears of roads nationwide. For example, 

the Committee heard testimony at a July 12, 2017, human trafficking hearing on how the trucking industry is an important part 

of the solution, including saving lives by identifying instances of 

human trafficking. 

Despite these important efforts, more can be done to combat 

human trafficking, and this bill would serve as an important deterrent measure, in addition to penalizing traffickers. 

SUMMARY OF PROVISIONS

S. 1532 would disqualify, for life, an individual who uses a CMV 

in committing a felony involving a severe form of trafficking in persons from operating a CMV. 

LEGISLATIVE HISTORY

S. 1532 was introduced by Senator Thune (for himself and Senators Klobuchar and Nelson) on July 12, 2017. Senators Cornyn, 

Rubio, Heller, and Blumenthal are also cosponsors. On August 3, 

2017, the Committee, by voice vote, reported S. 1532 favorably 

without amendment. 

In addition, on July 12, 2017, the Committee held a hearing entitled, ‘‘Force Multipliers: How Transportation and Supply Chain 

Stakeholders Are Combating Human Trafficking,’’ which examined 

the various interactions between the transportation sector and 

human trafficking, and served as an opportunity to explore some 

of the specific solutions and efforts utilized by organizations that 

work to mitigate the exploitation of individuals. 

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: 

S. 1532—No Human Trafficking on Our Roads Act 

S. 1532 would permanently prohibit anyone who has used a commercial vehicle to commit a felony involving human trafficking 

from operating a commercial motor vehicle in the future. Based on 

information from the Federal Motor Carrier Safety Administration 

(FMCSA), CBO estimates that implementing the bill would have no 

significant effect on the federal budget. 

State agencies that issue driver’s licenses would be responsible 

for implementing the prohibition in the bill. Based on information 

from FMCSA, CBO expects that the agency would need to change 

policies and procedures as well as update the training that it offers 

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for state inspectors and investigators who are responsible for combating criminal activities such as drug and human trafficking. For 

such work, CBO estimates that the agency would require about 

half the time of one full-time employee annually over the 2018– 

2022 period. CBO estimates that implementing the provisions of 

the bill would cost less than $500,000 over the 2018–2022 period; 

such spending would be subject to the availability of appropriated 

funds. 

Enacting S. 1532 would not affect direct spending or revenues; 

therefore, pay-as-you-go procedures do not apply. CBO estimates 

that enacting S. 1532 would not increase net direct spending or onbudget deficits in any of the four consecutive 10-year periods beginning in 2028. 

S. 1532 contains no intergovernmental or private-sector mandates as defined in the Unfunded Mandates Reform Act (UMRA). 

As a condition of assistance, the bill would require states to ensure 

that individuals who commit acts of human trafficking are not 

issued commercial driver’s licenses. States already screen applicants for a number of items, including drug offenses. Consequently, 

CBO estimates that the costs of the additional requirement would 

be small. Conditions of assistance, by definition in UMRA, are not 

considered intergovernmental mandates. 

The CBO staff contacts for this estimate are Sarah Puro (for federal costs) and Jon Sperl (for intergovernmental mandates). The estimate was approved by Theresa Gullo, Assistant Director for 

Budget Analysis. 

REGULATORY IMPACT

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

The bill affects commercial drivers license (CDL) holders already 

subject to disqualifying offenses at the Department of Transportation. Therefore, the number of persons covered would be consistent with current levels. Further, the disqualification that would 

be provided under S. 1532 would potentially impact CDL holders 

only if they were convicted of a felony involving a severe form of 

trafficking in persons. 

ECONOMIC IMPACT

The legislation is not expected to have a negative impact on the 

Nation’s economy. 

PRIVACY

The reported bill is not expected to impact the personal privacy 

of individuals. 

PAPERWORK

This legislation is not expected to result in additional paperwork. 

S. 1532 would not create any new programs, rather it would provide an additional offense to existing violations that warrant disVerDate Sep 11 2014 05:07 Dec 01, 2017 Jkt 079010 PO 00000 Frm 00005 Fmt 6659 Sfmt 6602 E:\HR\OC\SR188.XXX SR188
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qualification for life under section 31310 of title 49, United States 

Code. 

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 Act may be cited as the ‘‘No 

Human Trafficking on Our Roads Act.’’ 

Section 2. Lifetime disqualification without reinstatement. 

This section would amend section 31310(d) of title 49, United 

States Code, to include a lifetime disqualification without reinstatement for any individual who uses a CMV to commit a felony involving a severe form of trafficking in persons, as defined in paragraph 

(9) of 22 U.S.C. 7102. 

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): 

TITLE 49. TRANSPORTATION 

SUBTITLE VI. MOTOR VEHICLE AND DRIVER PROGRAMS

PART B. COMMERCIAL

CHAPTER 313. COMMERCIAL MOTOR VEHICLE OPERATORS

§ 31310. Disqualifications 

(a) BLOOD ALCOHOL CONCENTRATION LEVEL.—In this section, the 

blood alcohol concentration level at or above which an individual 

when operating a commercial motor vehicle is deemed to be driving 

under the influence of alcohol is .04 percent. 

(b) FIRST VIOLATION OR COMMITTING FELONY.— 

(1) Except as provided in paragraph (2) of this subsection 

and subsection (c) of this section, the Secretary of Transportation shall disqualify from operating a commercial motor vehicle for at least one year an individual- 

(A) committing a first violation of driving a commercial 

motor vehicle under the influence of alcohol or a controlled 

substance; 

(B) committing a first violation of leaving the scene of an 

accident involving a commercial motor vehicle operated by 

the individual; 

(C) using a commercial motor vehicle in committing a 

felony (except a felony described in subsection (d) of this 

section); 

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(D) committing a first violation of driving a commercial 

motor vehicle when the individual’s commercial driver’s license is revoked, suspended, or canceled based on the individual’s operation of a commercial motor vehicle or when 

the individual is disqualified from operating a commercial 

motor vehicle based on the individual’s operation of a commercial motor vehicle; or 

(E) convicted of causing a fatality through negligent or 

criminal operation of a commercial motor vehicle. 

(2) If the vehicle involved in a violation referred to in paragraph (1) of this subsection is transporting hazardous material 

required to be placarded under section 5103 of this title, the 

Secretary shall disqualify the individual for at least 3 years. 

(c) SECOND AND MULTIPLE VIOLATIONS.— 

(1) Subject to paragraph (2) of this subsection, the Secretary 

shall disqualify from operating a commercial motor vehicle for 

life an individual— 

(A) committing more than one violation of driving a commercial motor vehicle under the influence of alcohol or a 

controlled substance; 

(B) committing more than one violation of leaving the 

scene of an accident involving a commercial motor vehicle 

operated by the individual; 

(C) using a commercial motor vehicle in committing 

more than one felony arising out of different criminal episodes; 

(D) committing more than one violation of driving a commercial motor vehicle when the individual’s commercial 

driver’s license is revoked, suspended, or canceled based on 

the individual’s operation of a commercial motor vehicle or 

when the individual is disqualified from operating a commercial motor vehicle based on the individual’s operation 

of a commercial motor vehicle; 

(E) convicted of more than one offense of causing a fatality through negligent or criminal operation of a commercial 

motor vehicle; or 

(F) committing any combination of single violations or 

use described in subparagraphs (A) through (E). 

(2) The Secretary may prescribe regulations establishing 

guidelines (including conditions) under which a disqualification 

for life under paragraph (1) of this subsection may be reduced 

to a period of not less than 10 years. 

(d) øCONTROLLED SUBSTANCE VIOLATIONS¿ LIFETIME DISQUALIFICATION WITHOUT REINSTATEMENT.—øThe Secretary¿ 

(1) CONTROLLED SUBSTANCE VIOLATIONS.—The Secretary 

shall disqualify from operating a commercial motor vehicle for 

life an individual who uses a commercial motor vehicle in committing a felony involving manufacturing, distributing, or dispensing a controlled substance, or possession with intent to 

manufacture, distribute, or dispense a controlled substance. 

(2) HUMAN TRAFFICKING VIOLATIONS.—The Secretary shall 

disqualify from operating a commercial motor vehicle for life an 

individual who uses a commercial motor vehicle in committing 

a felony involving an act or practice described in paragraph (9) 

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of section 103 of the Trafficking Victims Protection Act of 2000 

(22 U.S.C. 7102(9)). 

(e) * * * 

Æ