Zero-day hunters and the exploit broker market have been a thing for some time now. The US is one buyer on a world market of exploits. Maybe that's what this is trying to address. Many Nation states already stockpile zero days to use against one another when necessary or useful. I skimmed over the whole thing, and I'm guessing the US government wants to carve out a niche in the international zero-day market by creating a privatized, government-backed body that will collectively share hacking tools and exploits among one another. Membership being contingent on NOT participating in any other zero-day markets nor bargaining with any known exploit brokers.