diff --git a/scripts/manifest_fixer.py b/scripts/manifest_fixer.py
index b6fe34e..80a398b 100755
--- a/scripts/manifest_fixer.py
+++ b/scripts/manifest_fixer.py
@@ -179,7 +179,12 @@
   if target_attr is None:
     target_attr = doc.createAttributeNS(android_ns, 'android:targetSdkVersion')
     if library:
-      target_attr.value = '1'
+      # TODO(b/117122200): libraries shouldn't set targetSdkVersion at all, but
+      # ManifestMerger treats minSdkVersion="Q" as targetSdkVersion="Q" if it
+      # is empty.  Set it to something low so that it will be overriden by the
+      # main manifest, but high enough that it doesn't cause implicit
+      # permissions grants.
+      target_attr.value = '15'
     else:
       target_attr.value = target_sdk_version
     element.setAttributeNode(target_attr)
diff --git a/scripts/manifest_fixer_test.py b/scripts/manifest_fixer_test.py
index 66a2317..d1d401a 100755
--- a/scripts/manifest_fixer_test.py
+++ b/scripts/manifest_fixer_test.py
@@ -173,7 +173,7 @@
     """Tests inserting targetSdkVersion when minSdkVersion exists."""
 
     manifest_input = self.manifest_tmpl % self.uses_sdk(min='27')
-    expected = self.manifest_tmpl % self.uses_sdk(min='28', target='1')
+    expected = self.manifest_tmpl % self.uses_sdk(min='28', target='15')
     output = self.raise_min_sdk_version_test(manifest_input, '28', '29', True)
     self.assertEqual(output, expected)
 
@@ -189,7 +189,7 @@
     """Tests inserting targetSdkVersion when minSdkVersion does not exist."""
 
     manifest_input = self.manifest_tmpl % ''
-    expected = self.manifest_tmpl % self.uses_sdk(min='28', target='1')
+    expected = self.manifest_tmpl % self.uses_sdk(min='28', target='15')
     output = self.raise_min_sdk_version_test(manifest_input, '28', '29', True)
     self.assertEqual(output, expected)