Here is the definition that the bill uses for "transaction":
> (17) TRANSACTION.—The term “transaction” means any acquisition, importation, transfer, installation, dealing in, or use of any information and communications technology product or service, including ongoing activities such as managed services, >>>data transmission<<<, software updates, repairs, or the provision of data hosting services, or a class of such transactions.
As you can see here, mere data transmission is considered to be a transaction. I strongly suggest that you read the bill, in its entirety.
You're right, the definition of transaction is quite broad here. However in order for VPN to run afoul of this bill, the gov't would first need to enforce the bill by banning individual users from accessing specific sites on the internet, which the VPN would then bypass. That kind of censorship has never been permitted under the first amendment and I don't see anything here that changes that.
Here is the definition that the bill uses for "transaction":
> (17) TRANSACTION.—The term “transaction” means any acquisition, importation, transfer, installation, dealing in, or use of any information and communications technology product or service, including ongoing activities such as managed services, >>>data transmission<<<, software updates, repairs, or the provision of data hosting services, or a class of such transactions.
As you can see here, mere data transmission is considered to be a transaction. I strongly suggest that you read the bill, in its entirety.