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“While a tariff on ATMs would have little or no ‘leverage’ value within the U.S.-China trade relationship, it would reduce the access to banking services and government benefits currently enjoyed by the most vulnerable Americans and would disproportionately harm small and medium sized enterprises… In addition to the more targeted harms, the effect of reduced ATM deployment on America’s retail economy generally would be substantial and would alone be sufficient to justify taking ATMs off the retaliation list.”