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The Biden administration is updating the US government’s blueprint for protecting the country’s most important infrastructure from hackers, terrorists, and natural disasters.
On Tuesday, President Joe Biden signed a national security memorandum overhauling a 2013 directive that lays out how agencies work together, with private companies, and with state and local governments to improve the security of hospitals, power plants, water facilities, schools, and other critical infrastructure.
Biden’s memo, which is full of updates to the Obama-era directive and new assignments for federal agencies, arrives as the US confronts an array of serious threats to the computer systems and industrial equipment undergirding daily life. In addition to foreign government hackers and cyber criminals seeking to destabilize American society by crippling vital infrastructure, extremist groups and lone actors have plotted to sabotage these systems, and climate change is fueling natural disasters that regularly overwhelm basic services.
But foreign cyber threats loom largest as a danger in the near future. “America faces an era of strategic competition, where state actors will continue to target American critical infrastructure and tolerate or enable malicious activity conducted by nonstate actors,” Caitlin Durkovich, the deputy homeland security adviser for resilience and response, told reporters during a briefing on Monday.
The memorandum has three core purposes: to formalize the role of the Department of Homeland Security’s Cybersecurity and Infrastructure Security Agency (CISA) as the lead agency tasked with protecting infrastructure from bad actors and natural hazards; to improve partnerships with the private sector through faster, more comprehensive information sharing; and to lay out the groundwork for minimum cybersecurity requirements for sectors that currently lack them.
The regulatory push represents a dramatic shift from the government’s approach to infrastructure protection a decade ago. The Biden administration, having concluded that voluntary partnerships were not sufficiently reducing risks to essential services, has applied new cyber rules to the aviation, pipeline, railroad, maritime, and medical device industries, and the Department of Health and Human Services is working on security requirements for hospitals. Now, the administration plans to use the new memo to turbocharge efforts to apply rules to other sectors.
“It is important that we work together to set baseline security standards for the lifeline sectors on which the American way of life and our democracy depends,” Durkovich says.
The document tasks the government’s “Sector Risk Management Agencies,” or SRMAs—each of which oversees and assists one or more infrastructure sectors with cyber and physical security—with determining whether existing rules adequately address their industries’ vulnerabilities and, if not, crafting new rules. The memo includes a process to help agencies if they conclude that they lack “the tools or authorities necessary to ensure effective implementation of those requirements,” a senior administration official said during Monday’s briefing, speaking anonymously pursuant to the White House’s terms.
That process is designed to support agencies like the Environmental Protection Agency, which tried to issue cyber requirements for water systems in 2023 but abandoned the effort after a legal challenge from industry groups and Republican-led states.
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Anticipating further industry pushback to new rules in various sectors, the White House is promising to collaborate with companies. “These requirements … need to be developed in close coordination with the owners and operators of that infrastructure to ensure they are appropriate and proportionate to the vulnerability,” the senior administration official says.
In addition to new cyber standards, the memo attempts to kickstart more harmonious and productive information-sharing relationships between government agencies and private companies. The private sector often complains that agencies either declassify information too slowly or keep it tightly restricted to only executives with security clearances. Many companies say that without timely access to the government’s detailed intelligence about hackers’ activities, it is difficult to stay ahead of those adversaries.
To address these tensions, Biden is directing US spy agencies to redouble their efforts to “collect, produce, and share intelligence” with infrastructure operators, Durkovich says.
The memo requires the Office of the Director of National Intelligence (ODNI) to produce a report on the state of the government’s information-sharing with the private sector. As part of that process, the senior administration official says, ODNI will work with CISA and other agencies to write procedures for better outreach to companies.
The government can look to two recent case studies for insights about the best ways to share useful information without jeopardizing the sensitive sources and methods used to gather it. As Russia began its expanded invasion of Ukraine in 2022, the intelligence community declassified and published intelligence about the Kremlin’s plans at such a rapid tempo that it stunned many former officials. And when officials wanted to warn companies about the seriousness of China’s recent cyber intrusions into US infrastructure, they convened classified briefings that starkly laid out the potential damage Beijing could do in the event of a war.
“We have a lot of instructive emerging practices and lessons learned from what has happened in the first three years of this administration,” says the senior official.
In addition to the report on information sharing, the memo also gives ODNI 180 days to produce a formal intelligence assessment on threats to America’s infrastructure, and the senior official says the government “will work to share that” with companies to the extent possible.
Beyond its major substantive changes, the new memo significantly boosts the stature of CISA, which did not exist when the previous plan was written. The memo codifies CISA’s twin roles as a government-wide coordinator for infrastructure security work and as the designated SRMA for eight of the 16 sectors.
CISA has pursued its role as the lead infrastructure protection agency in multiple ways, its director, Jen Easterly, told reporters during Monday’s briefing.
First, CISA reestablished a council of senior officials that makes major decisions about how agencies coordinate to address risks. Second, Easterly says, CISA has provided agencies with “guidance and templates” to help produce risk assessments and risk management plans for each of their sectors. Third, CISA is finalizing a list of “systemically important entities” whose operations power daily life in fundamental ways.
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The government will work with the companies on the important-entities list—there are fewer than 500 of them—“to ensure they have the resources necessary to manage risk,” a second senior administration official told reporters on Monday. Those companies will also be priorities for regulation.
While it updates key parts of the government’s defensive playbook, the memo does not change the basic structure underpinning this work: the 16 sectors—each containing a collection of related industries—that together comprise the nation’s critical infrastructure. A CISA report published in late 2021 recommended that the administration consider adding new sectors for the space and bioeconomy industries, but officials decided not to do so.
“Because space is really a part of so many different sectors, it did not, at this time, make sense to break space out as a separate sector,” the second senior official says. (CISA is, however, focused on space cybersecurity.) Government leaders similarly decided that bioeconomy risks were not unique enough to merit a new sector. But both industries could receive their own sectors in the future “if there are significant changes” to the risks they face, says the second official.
In light of how quickly those risks and other conditions could change, the memo directs DHS to submit a “national risk management plan” to the White House every two years summarizing what the government is doing to prevent harm.
Biden administration officials see the new document as more than just an updated strategy. To them, it is a watershed moment in how the government organizes itself to protect Americans from poisoned water, widespread blackouts, and other infrastructure disasters.
The new memo, Durkovich says, “prepares us for the next decade—what the president calls the decisive decade—and what lies out on the horizon.”
