As Introduced
136th General Assembly
Regular Session H. B. No. 176
2025-2026
Representatives Fischer, Lorenz
Cosponsors: Representatives Ferguson, Newman, Santucci, Thomas, D., Gross,
Johnson, Workman
To enact sections 1357.01, 1357.02, 1357.03,
1357.04, 1357.05, 1357.06, 1357.07, 1357.08,
1357.09, 1357.10, 1357.11, and 1357.12 of the
Revised Code to create a regulatory relief
division within the common sense initiative
office and to establish a universal regulatory
sandbox program.
BE IT ENACTED BY THE GENERAL ASSEMBLY OF THE STATE OF OHIO:
Section 1. That sections 1357.01, 1357.02, 1357.03,
1357.04, 1357.05, 1357.06, 1357.07, 1357.08, 1357.09, 1357.10,
1357.11, and 1357.12 of the Revised Code be enacted to read as
follows:
Sec. 1357.01. As used in this chapter:
(A) "Advisory committee" means the universal regulatory
sandbox program advisory committee established under section
1357.03 of the Revised Code.
(B) "Applicable agency" means a department or agency of
the state that by law regulates a business activity and persons
engaged in such business activity, including the issuance of
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licenses or other types of authorization, which the regulatory
relief division determines would otherwise regulate a sandbox
participant.
(C) "Business day" means any day of the week, excluding
Saturday, Sunday, and a legal holiday, as defined in section
1.14 of the Revised Code.
(D) "Common sense initiative office" means the office
established by the governor under section 107.61 of the Revised
Code.
(E) "Consumer" means a person that purchases or otherwise
enters into a transaction or agreement to receive an offering
pursuant to a demonstration by a sandbox participant.
(F) "Demonstrate" or "demonstration" means to temporarily
provide an offering in accordance with the provisions of the
universal regulatory sandbox program described in this chapter.
(G) "Innovation" means the use or incorporation of a new
idea, a new or emerging technology, or a new use of existing
technology to address a problem, provide a benefit, or otherwise
offer a product, production method, or service.
(H) "Innovative offering" means an offering that includes
an innovation.
(I)(1) "Product" means a commercially distributed good
that is all of the following:
(a) Tangible personal property;
(b) The result of a production process;
(c) Passed through the distribution channel before
consumption.
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(2) "Product" does not include either of the following:
(a) Beer or wine, as defined in section 4301.01 of the
Revised Code;
(b) Motor vehicles, as defined in section 4501.01 of the
Revised Code.
(J) "Production" means the method or process of creating
or obtaining a good, which may include assembling, breeding,
capturing, collecting, extracting, fabricating, farming,
fishing, gathering, growing, harvesting, hunting, manufacturing,
mining, processing, raising, or trapping a good.
(K) "Sandbox participant" means a person whose application
to participate in the universal regulatory sandbox is approved
in accordance with this chapter.
(L) "Service" means any commercial activity, duty, or
labor performed for another person, except for either of the
following:
(1) The activities regulated by Title XLIII of the Revised
Code to the extent that those activities pertain to the
distribution or sale of beer or wine;
(2) The activities regulated by Chapter 4517. of the
Revised Code.
Sec. 1357.02. (A) The common sense initiative office shall
establish a universal regulatory sandbox program in consultation
with applicable agencies to enable a person to obtain limited
access to the market in this state to test products or services
without obtaining any other license or authorization that
otherwise would be required.
(B) The governor shall establish a regulatory relief
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division within the common sense initiative office for the
purposes of administering this chapter and acting as a liaison
between private businesses and applicable agencies to identify
state laws or regulations that could potentially be waived or
suspended under the universal regulatory sandbox program.
(C) The regulatory relief division may do all of the
following:
(1) Identify state laws and regulations that unnecessarily
inhibit the creation and success of new companies or industries
in this state and provide recommendations to the governor and
the general assembly on modifying such state laws and
regulations;
(2) Create a framework for analyzing the risk level to the
health, safety, and financial well-being of consumers as a
result of permanently removing or temporarily waiving laws and
regulations that inhibit the creation or success of new and
existing companies or industries in this state;
(3) Propose potential reciprocity agreements between
states that use or are proposing to use similar universal
regulatory sandbox programs as described in this chapter or
Chapter 1355. of the Revised Code;
(4) Adopt rules in accordance with Chapter 119. of the
Revised Code as necessary to do either of the following:
(a) Administering the universal regulatory sandbox
program, including the application process and the reporting
requirements of sandbox participants;
(b) Cooperating and consulting with the superintendent of
financial institutions respecting the regulatory sandbox program
authorized by Chapter 1355. of the Revised Code.
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Sec. 1357.03. (A) The universal regulatory sandbox program
advisory committee is established within the common sense
initiative office. The committee shall advise and make
recommendations to the regulatory relief division as described
in this chapter.
(B) The committee shall consist of the following members:
(1) Six members who represent business interests from a
variety of industry clusters, appointed by the governor;
(2) Three members who represent state agencies that
regulate businesses, appointed by the governor;
(3) One member of the senate, appointed by the president
of the senate;
(4) One member of the house of representatives, appointed
by the speaker of the house of representatives.
(C)(1) Members of the committee shall be appointed not
later than thirty days after the effective date of this section.
Members of the committee serve at the pleasure of the member's
appointing authority. Any vacancy in the membership of the
committee shall be filled within sixty days after the vacancy
occurs in the same manner as the original appointment.
(2) Of the initial appointments made by the governor to
the committee:
(a) Three of the members described in division (B)(1) of
this section and two of the members described in division (B)(2)
of this section shall serve for a term ending the first day of
the second calendar year that begins after the effective date of
this section;
(b) Three of the members described in division (B)(1) of
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this section and one of the members described in division (B)(2)
of this section shall serve for a term ending the first day of
the fourth calendar year that begins after the effective date of
this section.
(3) After the initial appointments, terms for all members
appointed by the governor shall be four years, with each term
ending on the same day of the same month as did the term it
succeeds.
(4) Legislative members of the committee shall serve terms
of two years or for the remainder of the member's legislative
term, whichever is less.
(D) Members of the committee shall serve without
compensation but may be reimbursed for expenses actually
incurred in the performance of their duties, within the limits
of funds available to the committee for such purposes.
(E) The governor shall select a chairperson for the
committee on an annual basis. The committee shall meet at the
call of the chairperson. The initial meeting shall not be later
than thirty days after the last member is appointed. A majority
of the members of the committee constitutes a quorum for the
transaction of the business of the committee.
(F) The staff of the regulatory relief division shall
provide technical and administrative support as needed by the
committee.
(G) The committee is not a public body for the purposes of
section 121.22 of the Revised Code.
Sec. 1357.04. On or before October 1 of the first year
that begins after the effective date of this section, and
annually thereafter, the common sense initiative office shall
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submit a written report on the activities of the regulatory
relief division to the general assembly in accordance with
section 101.68 of the Revised Code. The report shall include all
of the following:
(A) Information regarding each participant in the
universal regulatory sandbox program, including which industry
each participant represents and the anticipated or actual cost
savings that each participant experiences;
(B) Recommended changes to laws or regulations that the
regulatory relief division determines unnecessarily inhibit the
creation and success of new companies or industries;
(C) Information on the universal regulatory sandbox
program's impact on consumer outcomes;
(D) Recommended changes to the universal regulatory
sandbox program or the regulatory relief division.
Sec. 1357.05. (A) A person that seeks to participate in
the universal regulatory sandbox program shall apply to the
regulatory relief division in a form and manner prescribed by
the division. The application shall, at minimum, include all of
the following:
(1) Confirmation that the applicant is subject to the
jurisdiction of the common sense initiative office, which may be
demonstrated through incorporation, residency, an agreement with
the office by which the applicant agrees to be subject to the
laws and courts of this state relating to any action arising out
of the applicant's demonstration of a product or service in the
universal regulatory sandbox, or otherwise;
(2) Confirmation that the applicant has established a
physical or virtual location in the state, from which the
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demonstration of an innovative offering will be developed and
performed and where all required records, documents, and data
will be maintained;
(3) Relevant personal and contact information for the
applicant, including legal names, addresses, telephone numbers,
electronic mail addresses, web site addresses, and other
information that may be required by the regulatory relief
division;
(4) Disclosure of criminal convictions, if any, of the
applicant and other participating personnel;
(5) A description of the innovative offering to be
demonstrated, including statements regarding all of the
following:
(a) How the offering is subject to licensing, legal
prohibition, or other authorization requirements outside of the
universal regulatory sandbox;
(b) Each law or regulation that the applicant seeks to
have waived or suspended while participating in the universal
regulatory sandbox program;
(c) How the offering would benefit consumers;
(d) How the offering is different from other offerings
available in this state;
(e) What risks might exist for consumers that use or
purchase the offering;
(f) How participating in the regulatory sandbox would
enable a successful demonstration of the offering;
(g) A description of the proposed demonstration plan,
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including estimated time periods for beginning and ending the
demonstration;
(h) Recognition that the applicant will be subject to all
laws and regulations pertaining to the applicant's offering
after conclusion of the demonstration;
(i) How the applicant will end the demonstration and
protect consumers if the demonstration fails.
(6) A list of the state agencies that regulate the
applicant's business;
(7) Other information that may be required by the
regulatory relief division.
(B) The regulatory relief division shall, upon request,
consult with persons interested in participating in the
universal regulatory sandbox program and assist such persons in
preparing an application, including by helping to identify state
agencies that regulate the person's business and laws or
regulations that could have an adverse impact on the success of
that business and which the person may seek to have waived or
suspended while participating in the universal regulatory
sandbox program.
(C) The governor may require an application fee to offset
the costs of the regulatory relief division and the common sense
initiative office in administering the universal regulatory
sandbox program. All fees collected under this section shall be
deposited to the universal regulatory sandbox program fund,
which is created in the state treasury, and used for the
purposes of this chapter.
(D) An applicant shall file a separate application for
each innovative offering that the applicant seeks to
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demonstrate.
(E) After an application is filed, the regulatory relief
division shall do all of the following:
(1) Keep confidential the contents of the application and
any related information provided by the applicant;
(2) Consult with each applicable government agency that
regulates the applicant's business regarding the application and
whether more information is needed from the applicant;
(3) Seek any additional information from the applicant
that the regulatory relief division determines is necessary.
(F) Not later than five business days after the date a
complete application is received by the regulatory relief
division, the division shall do both of the following:
(1) Review the application and refer it to each applicable
state agency that regulates the applicant's business;
(2) Provide the applicant with an acknowledgment of
receipt of the application and the identity and contact
information for each state agency to which the application has
been referred for review.
(G) Applications received under this section are not
public records for the purposes of Chapter 149. of the Revised
Code.
Sec. 1357.06. (A)(1) Subject to division (A)(2) of this
section, not later than thirty business days after the date on
which an applicable agency receives a complete application under
section 1357.05 of the Revised Code for review, the applicable
agency shall provide a written report to the regulatory relief
division of the applicable agency's findings. The report shall
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include both of the following:
(a) A description of any identifiable, likely, and
significant harm to the health, safety, or financial well-being
of consumers that the law or regulation the applicant seeks to
waive or suspend protects against;
(b) A recommendation to the regulatory relief division
that the applicant either be admitted or denied entrance into
the universal regulatory sandbox.
(2) The applicable agency may extend the deadline for
delivering the written report required by division (A)(1) of
this section by an additional five business days by providing
notice of the extension to the regulatory relief division. The
applicable agency shall not extend the deadline more than once
for each application.
(3) If the applicable agency recommends an applicant under
this section be denied entrance into the universal regulatory
sandbox, the written report shall include a description of the
reasons for the recommendation, including why a temporary waiver
or suspension of the relevant laws or regulations would
potentially significantly harm the health, safety, or financial
well-being of consumers or the public, or create unreasonable
expenses for the taxpayers of this state, and the likelihood of
such harm or expenses.
(4) If the applicable agency determines that the
consumer's or public's health, safety, or financial well-being
can be protected through less restrictive means than the
existing relevant laws or regulations, then the applicable
agency shall provide a recommendation of how that may be
achieved.
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(5) If an applicable agency fails to deliver a written
report as required by this section, the regulatory relief
division shall proceed as though the applicable agency does not
object to the temporary waiver or suspension of the relevant
laws or regulations for an applicant seeking to participate in
the universal regulatory sandbox.
(B) The regulatory relief division shall immediately
reject an application if any of the following apply:
(1) An applicable agency determines, in the agency's sole
discretion, that the applicant's offering fails to comply with
standards or specifications required by federal law or
regulations;
(2) An applicable agency timely recommends that the
applicant be denied entrance to the universal regulatory sandbox
in the agency's written report under division (A) of this
section and provides the applicant with the reasons for that
determination in accordance with that division;
(3) The regulatory relief division determines that the
applicant is better suited for the regulatory sandbox program
authorized by Chapter 1355. of the Revised Code;
(4) The applicant or any person who seeks to participate
with the applicant in demonstrating an offering has been
convicted, entered a plea of nolo contendere, or entered a plea
of guilty or nolo contendere held in abeyance, for any crime
involving significant theft, fraud, or dishonesty.
(C)(1) The regulatory relief division shall provide all
applications received under section 1357.05 of the Revised Code
and written reports received under this section, other than
those rejected under division (B) of this section, to the
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universal regulatory sandbox program advisory committee.
(2) The universal regulatory sandbox program advisory
committee shall meet to review an application and any
corresponding reports not less than thirty days, and not more
than one hundred twenty days, after receiving the application
from the regulatory relief division under division (C)(1) of
this section.
(3) Subject to divisions (C)(2) and (4) of this section,
the universal regulatory sandbox program advisory committee
shall meet not less than one time per calendar quarter.
(4) The committee may cancel a meeting otherwise required
by division (C)(3) of this section if no applications are
available for review.
(5) After reviewing an application and the corresponding
reports of applicable agencies, the committee shall provide the
governor and the common sense initiative office the committee's
recommendation that the applicant either be admitted or denied
entrance into the universal regulatory sandbox.
(D) The universal regulatory sandbox program advisory
committee shall consider all of the following in determining
whether to recommend that an applicant be admitted to the
universal regulatory sandbox:
(1) Whether the applicable agency has previously issued a
license or other authorization to the applicant;
(2) Whether the applicable agency has previously
investigated, sanctioned, or pursued legal action against the
applicant;
(3) Whether a competitor to the applicant is or has been a
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universal regulatory sandbox participant;
(4) Whether the applicant's plan adequately protects
consumers from potential harm;
(5) The risk of harm to consumers as compared to the
potential benefits of the applicant's participation in the
universal regulatory sandbox.
(E)(1) The regulatory relief division, the common sense
initiative office, or the governor may deny any application
submitted under this chapter for any reason, including if the
division, office, or governor determines that the preponderance
of evidence demonstrates that suspending or waiving enforcement
of a law or regulation would cause a significant risk of harm to
consumers or residents of the state.
(2) If the division, office, or governor denies an
application under division (E)(1) or (B) of this section, the
division shall provide to the applicant a written description of
the reasons for not allowing the applicant to participate in the
universal regulatory sandbox.
(3) The division's, office's, or governor's determination
to deny an application is final.
Sec. 1357.07. (A)(1) Subject to division (B) of section
1357.06 of the Revised Code, upon receiving a recommendation to
approve an application from the universal regulatory sandbox
program advisory committee, the regulatory relief division, in
consultation with the governor, may enter into a written
agreement with the applicant admitting the applicant to the
universal regulatory sandbox and describing the specific laws
and regulations that are waived or suspended as part of the
applicant's participation therein.
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(2) The sandbox participant may demonstrate the offering
described in the sandbox participant's application, as described
in the agreement, for five years following the date the
agreement is entered.
(3) An agreement under this section that waives or
suspends a law or regulation does so only with respect to
consumers who are residents of this state.
(4) An agreement under this section does not restrict a
sandbox participant that holds a license or other authorization
in another state or jurisdiction from acting in accordance with
that license or other authorization.
(B) The regulatory relief division shall not enter into a
written agreement with an applicant that waives or suspends
either of the following:
(1) Any tax levied by this state or a taxing authority of
this state, as defined in section 5705.01 of the Revised Code;
(2) A law or regulation that allows a consumer to seek
restitution in the event that the consumer is harmed.
(C) A sandbox participant is deemed to possess an
appropriate license or other authorization under the laws of
this state for the purposes of any provision of federal law
requiring licensure or other authorization by the state.
(D) Subject to division (E) of this section, all of the
following apply:
(1) During the demonstration period, a sandbox participant
is not subject to the enforcement of state laws or regulations
waived or suspended pursuant to the written agreement between
the regulatory relief division and the sandbox participant.
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(2) A prosecutor shall not file or pursue charges
pertaining to a law or regulation waived or suspended pursuant
to that agreement that occurs during the demonstration period.
(3) A state agency shall not file or pursue any punitive
action against a sandbox participant, including a fine or
license suspension or revocation, for the violation of a law or
regulation waived or suspended pursuant to that agreement that
occurs during the demonstration period.
(E) A sandbox participant does not have immunity related
to any criminal offense committed during the sandbox
participant's participation in the universal regulatory sandbox.
(F) By written notice, the regulatory relief division may
end a sandbox participant's participation in the universal
regulatory sandbox at any time and for any reason, including if
the division, the common sense initiative office, or the
governor determines that a sandbox participant is not operating
in good faith to bring an innovative offering to market.
(G) Neither the regulatory relief division nor its
employees are liable for any business losses or the recouping of
application expenses or other expenses related to the regulatory
sandbox, including either of the following:
(1) Denying an applicant's application to participate in
the universal regulatory sandbox for any reason;
(2) Ending a sandbox participant's participation in the
regulatory sandbox at any time and for any reason.
Sec. 1357.08. (A) Before demonstrating an offering to a
consumer, a sandbox participant shall disclose all of the
following to the consumer:
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(1) The name and contact information of the sandbox
participant;
(2) That the offering is authorized pursuant to the
universal regulatory sandbox and, if applicable, that the
sandbox participant does not have a license or other
authorization to provide an offering under state laws that
regulate offerings outside of the universal regulatory sandbox;
(3) That the offering is undergoing testing and may not
function as intended and may expose the consumer to certain
risks as identified by the applicable agency's written report;
(4) That the provider of the offering is not immune from
civil liability for any losses or damages caused by the
offering;
(5) That the provider of the offering is not immune from
criminal prosecution for violations of state law or regulations
that are not suspended or waived as allowed by the universal
regulatory sandbox;
(6) That the offering is a temporary demonstration that
may be discounted at the end of the demonstration period;
(7) The expected end date of the demonstration period;
(8) That a consumer may contact the regulatory relief
division and file a complaint regarding the offering being
demonstrated and provide the regulatory relief division's
telephone number and web site address where a complaint may be
filed.
(B) The disclosures required by division (A) of this
section shall be provided to a consumer in a clear and
conspicuous form and, for an internet or application-based
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offering, a consumer shall acknowledge receipt of the disclosure
before any transaction may be completed.
(C) The regulatory relief division may require that a
sandbox participant make additional disclosures to a consumer.
Sec. 1357.09. (A) At least thirty days before the end of
the demonstration period, a sandbox participant shall either
seek an extension in accordance with section 1357.10 of the
Revised Code or notify the regulatory relief division that the
sandbox participant will exit the regulatory sandbox and
discontinue the sandbox participant's demonstration after the
day on which the demonstration period ends.
(B) Subject to division (C) of this section, if the
regulatory relief division does not receive the notification
required by division (A) of this section, the regulatory sandbox
demonstration period ends five years following the date the
agreement described under section 1357.07 of the Revised Code is
entered.
(C) If a demonstration includes an offering that requires
ongoing duties, the sandbox participant shall continue to
fulfill those duties after the regulatory sandbox demonstration
period ends.
Sec. 1357.10. A sandbox participant may request an
extension of the universal regulatory sandbox demonstration
period not later than thirty days before the end of that period.
The regulatory relief division shall grant or deny a request for
an extension before the end of the demonstration period. If the
regulatory relief division grants the request, the division
shall specify the duration of the extension, which shall not be
more than twelve months after the date the regulatory sandbox
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demonstration period would have otherwise ended. The regulatory
relief division shall not approve more than three extensions,
each having a duration of not more than twelve months, for the
same sandbox participant respecting the same demonstration.
Sec. 1357.11. (A) A sandbox participant shall retain
records, documents, and data produced in the ordinary course of
business regarding an offering demonstrated in the universal
regulatory sandbox.
(B) If a sandbox participant ceases to provide an offering
before the end of a demonstration period, the sandbox
participant shall notify the regulatory relief division and each
applicable agency and report on actions taken by the sandbox
participant to ensure consumers have not been harmed as a
result. The regulatory relief division shall establish quarterly
reporting requirements for a sandbox participant, including
information about any consumer complaints.
(C) The regulatory relief division may request records,
documents, and data from a sandbox participant and, upon the
regulatory relief division's request, the sandbox participant
shall make such records, documents, and data available for
inspection by the regulatory relief division.
(D) The sandbox participant shall notify the regulatory
relief division and each applicable agency of any incidents that
result in harm to the health, safety, or financial well-being of
a consumer. If a sandbox participant fails to notify the
regulatory relief division and each applicable agency of any
incidents as described in division (D)(1) of this section, or
the regulatory relief division or an applicable agency has
evidence that significant harm to a consumer has occurred, the
regulatory relief division may immediately remove the sandbox
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participant from the universal regulatory sandbox.
(E) Not later than thirty days after the date on which a
sandbox participant exits the regulatory sandbox, the sandbox
participant shall submit a written report to the regulatory
relief division and each applicable agency describing the
sandbox participant's demonstration, including all of the
following:
(1) Any incidents of harm to consumers;
(2) Any legal action filed against the sandbox participant
as a result of the participant's demonstration;
(3) Any complaints filed with an applicable agency as a
result of the sandbox participant's demonstration.
(F) Not later than thirty days after the date on which an
applicable agency receives a quarterly reporting or written
report from a sandbox participant as required by this section,
the applicable agency shall provide a written report to the
regulatory relief division on the demonstration that describes
any statutory or regulatory reform the applicable agency
recommends as a result of the demonstration.
(G) The regulatory relief division may remove a sandbox
participant from the universal regulatory sandbox at any time if
the regulatory relief division determines that a sandbox
participant has engaged in, is engaging in, or is about to
engage in any practice or transaction that is in violation of
this chapter or that constitutes a violation of a law or
regulation for which suspension or waiver has not been granted.
Sec. 1357.12. (A) The regulatory relief division shall
create and maintain a publicly accessible page on the common
sense initiative office's web site that invites residents and
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559 H. B. No. 176 Page 21
As Introduced
businesses in this state to make suggestions regarding laws and
regulations that could be modified or eliminated to reduce the
regulatory burden of residents and businesses in the state.
(B) On at least a quarterly basis, the regulatory relief
division shall compile the results of suggestions from the web
page and provide a written report to the governor and the
general assembly, in accordance with section 101.68 of the
Revised Code, that describes the most common suggestions.
(C) In creating the report, the regulatory relief division
and the advisory committee shall ensure that private information
of residents and businesses that make suggestions on the web
page is not made public. The regulatory relief division may
evaluate the suggestions and provide analysis and suggestions
regarding which state laws and regulations could be modified or
eliminated to reduce the regulatory burden of residents and
businesses in the state while still protecting consumers.
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