Because of this, by wanting to help, the legislature actually does harm. You have a number of companies whose need for funding is immediate and urgent. They have people on staff, facilities on which rent needs to be paid, and hardware tin various stages of development. The investment community, however, feels none of this urgency. They look at the space transportation industry, and note that maybe in a year or two or three, Congress may provide some sort of incentive for investing.
Nobody wants to invest their money right before a tax shelter goes into effect.
It does harm. There are other actions talked about. Opening ISS as a customer for commercial resupply is suggested. This will not happen until ISS assembly is complete, which at the earliest will be 2005. Given the track record to date, it may slip a year or two beyond that.