PDF(PDF provides a complete and accurate display of this text.)Tip?
116th Congress } { Report
HOUSE OF REPRESENTATIVES
1st Session } { 116-255
======================================================================
ENERGY EMERGENCY LEADERSHIP ACT
_______
October 28, 2019.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
_______
Mr. Pallone, from the Committee on Energy and Commerce, submitted the
following
R E P O R T
[To accompany H.R. 362]
The Committee on Energy and Commerce, to whom was referred
the bill (H.R. 362) to amend the Department of Energy
Organization Act with respect to functions assigned to
Assistant Secretaries, and for other purposes, having
considered the same, report favorably thereon without amendment
and recommend that the bill do pass.
CONTENTS
Page
I. Purpose and Summary..............................................1
II. Background and Need for Legislation..............................2
III. Committee Hearings...............................................4
IV. Committee Consideration..........................................4
V. Committee Votes..................................................5
VI. Oversight Findings...............................................5
VII. New Budget Authority, Entitlement Authority, and Tax Expenditures5
VIII.Federal Mandates Statement.......................................5
IX. Statement of General Performance Goals and Objectives............5
X. Duplication of Federal Programs..................................5
XI. Committee Cost Estimate..........................................6
XII. Earmarks, Limited Tax Benefits, and Limited Tariff Benefits......6
XIII.Advisory Committee Statement.....................................6
XIV. Applicability to Legislative Branch..............................6
XV. Section-by-Section Analysis of the Legislation...................6
XVI. Changes in Existing Law Made by the Bill, as Reported............6
I. Purpose and Summary
Reps. Bobby L. Rush (D-IL) and Tim Walberg (R-MI)
introduced H.R. 362, the ``Energy Emergency Leadership Act'',
on January 9, 2019. H.R. 362 amends the Department of Energy
Organization Act to include energy emergency and energy
security among the functions that the Department of Energy
(DOE) Secretary shall assign to an Assistant Secretary.
H.R. 362 provides that the functions to be assigned to an
Assistant Secretary include responsibilities with respect to
infrastructure, cybersecurity, emerging threats, supply and
emergency planning, coordination, response, and restoration. It
also provides that these functions include the provision of
technical assistance, support, and response capabilities with
respect to energy sector threats, risks, and incidents to
State, local, and tribal governments and the energy sector.
II. Background and Need for Legislation
The United States maintains one of the most advanced and
complex energy infrastructures in the world. This includes an
extensive system transporting oil, natural gas, and refined
product to consumers. It involves the storage capacity of more
than 600 million barrels of oil and the storage of for natural
gas equivalent to nearly 2 months of U.S. consumption. This
also includes the vast, complex electricity systems that
deliver uninterrupted power from producers to consumers. These
intricate and highly interdependent systems enable every aspect
of our daily lives.\1\ Our Nation's economy, security, and the
health and safety of its citizens depend upon the reliable and
uninterrupted supply of fuels and electricity.
---------------------------------------------------------------------------
\1\See ``Valuation of Energy Security for the United States,''
Department of Energy, January 2017.
---------------------------------------------------------------------------
The manner by which energy and power is generated,
transmitted, and delivered continues to evolve in complexity.
As advances in digital and information technologies layer onto
existing practices and energy infrastructures, new risks
emerge, and new vulnerabilities are exposed. Recent high-
profile attempts by foreign actors to infiltrate our Nation's
energy systems and infrastructure further highlight the need
for legislation aimed at mitigating these significant and
growing threats to the reliable supply of energy in the United
States.
The Department of Energy's Authorities for Cybersecurity, Energy
Security, and Emergency Response
When the Department of Energy was organized in 1977, energy
security concerns revolved around oil supply shortages. As a
result, energy security emergency functions in the Department
of Energy Organization Act focused on distributing and
allocating fuels in an emergency. Over time, these functions in
DOE's organic statute remained largely unchanged, however DOE's
responsibilities and authorities have evolved substantially
beyond what was envisioned 40 years ago. Energy delivery
systems have become increasingly interconnected and digitized,
while society has become more dependent on energy in all its
forms--expanding the opportunities for cybersecurity threats
and other hazards that may require emergency response.
Today, the mission of DOE to advance the national,
economic, and energy security of the United States requires it
to act as the lead agency for the protection of electric power,
oil, and natural gas infrastructure. DOE has authority and
responsibilities for the physical and cybersecurity of energy
delivery systems from laws that Congress has passed and
Presidential directives. Congress has provided DOE with a wide
range of emergency response and cybersecurity authorities
affecting multiple segments of the energy sector, including in
the Department of Energy Organization Act, the Energy Policy
and Conservation Act, the Natural Gas Act, the Federal Power
Act (FPA), the Defense Production Act, and most recently with
the Fixing America's Transportation Act (FAST Act).
The FAST Act, which was signed into law in 2015, designated
DOE as the Sector-Specific Agency (SSA) for the energy sector
and provided the Department with several new energy security
authorities to respond to physical and cyberattacks to energy
systems. Section 61003 of the FAST Act amended section 215 of
the Federal Power Act and created a new section 215A entitled,
``Critical Electric Infrastructure Security.'' Section 215 of
the FPA states that when the President issues or provides to
the Secretary of Energy a written directive or determination
identifying a grid security emergency, the Secretary may, with
or without notice, hearing, or report, issue orders for
emergency measures to protect or restore the reliability of
critical electric infrastructure or of defense critical
electric infrastructure during an emergency.\2\
---------------------------------------------------------------------------
\2\Federal Power Act Sec. 215A, 16 U.S.C. Sec. Sec. 824o-1.
---------------------------------------------------------------------------
DOE's cybersecurity roles and responsibilities are also
guided by the Federal Government's operational framework, as
provided by the Presidential Policy Directive 41 (PPD-41)
issued in 2016 addressing ``United States Cyber Incident
Coordination.'' A primary purpose of PPD-41 is to improve
coordination across the Federal Government by clarifying roles
and responsibilities. Under the PPD-41 framework, DOE serves as
the lead agency for the energy sector, coordinating closely
with other agencies and the private sector to facilitate the
response, recovery, and restoration of damaged energy
infrastructure.
DOE Leadership in Energy Supply Emergencies
As the Energy SSA and pursuant to its other statutory
authorities relating to the supply and delivery of energy, DOE
coordinates with multiple Federal and State agencies and
collaborates with energy infrastructure owners and operators on
activities associated with identifying vulnerabilities,
mitigating incidents that may impact the energy sector, and
assisting with preparation, recovery or restoration to ensure
the supply of energy in emergencies.
During the past two presidential administrations, DOE has
strengthened these energy emergency functions, including for
preparedness, response, and restoration of energy systems
against all hazards. The growing interconnectedness of energy
systems and the surpassing national importance of ensuring the
supply and delivery of energy against cyber threats, however,
underscore the need to further consolidate and elevate the
Department's energy emergency functions, which as noted above
have not been updated since 1977.\3\
---------------------------------------------------------------------------
\3\For example, at the end of his tenure, which included reforms to
the Department's emergency management programs, Secretary Ernest Moniz
noted the need to further reorganize and consolidate the Department's
emergency programs in his ``Cabinet Exit Memo,'' DOE, Jan. 5, 2017.
---------------------------------------------------------------------------
In keeping with this, on February 14, 2018, Secretary of
Energy Rick Perry announced establishment of a new Office of
Cybersecurity, Energy Security, and Emergency Response (CESER)
at DOE, noting ``DOE plays a vital role in protecting our
Nation's energy infrastructure from cyber threats, physical
attack and natural disaster. This new office best positions the
Department to address the emerging threats of tomorrow while
protecting the reliable flow of energy to Americans today.''
The CESER office is currently led by Assistant Secretary Karen
S. Evans, whose work focuses on energy infrastructure security,
supporting the expanded national security responsibilities
assigned to DOE and reporting to the Under Secretary of
Energy.\4\
---------------------------------------------------------------------------
\4\See Press Release, U.S. Department of Energy, ``Karen Evans
Sworn in as DOE Assistant Secretary for Cybersecurity, Energy Security,
and Emergency Response.'' (Sep. 4, 2018), https://www.energy.gov/
articles/karen-evans-sworn-doe-assistant-secretary-cybersecurity-
energy-security-and-emergency.
---------------------------------------------------------------------------
The Committee finds that H.R. 362 would further enhance the
execution of this core energy emergency mission by establishing
in statute the assistant-secretary-level leadership of DOE's
emergency response and cybersecurity functions. Given the
critical role DOE serves for the Nation to coordinate, prepare
for, and respond to all hazards to the supply of energy,
including cybersecurity, such assistant-secretary level
leadership will strengthen coordination across the department,
ensure more effective interagency collaborations, and increase
accountability to Congress. DOE Under Secretary Mark Menezes
agreed in testimony during the 115th Congress that elevating
functions to Senate-confirmed level leadership would help
intergovernmental and interagency communication, and
information sharing to help DOE's ability to appropriately and
quickly address cyber-related emergencies. He noted further
that assistant-secretary level leadership ``increases
visibility and accountability.''\5\
---------------------------------------------------------------------------
\5\See oral Testimony of Under Secretary Mark Menezes, U.S.
Department of Energy, Before the Subcommittee on Energy, Committee on
Energy and Commerce, March 14, 2018
---------------------------------------------------------------------------
The Committee also finds that H.R. 362, by establishing
energy emergency leadership explicitly in the Department of
Energy Organization Act, ensures the benefits of elevated
leadership over the relevant missions will endure.
III. Committee Hearings
For the purposes of section 103(i) of H. Res. 6 of the
116th Congress--(1) the following hearing was used to develop
or consider H.R. 362: The Subcommittee on Energy held a hearing
on July 12, 2019, entitled ``Keeping The Lights On: Addressing
Cyber Threats To The Grid.'' The Subcommittee received
testimony from the following witnesses:
Karen S. Evans, Assistant Secretary, Office
of Cybersecurity, Energy Security, and Emergency
Response, United States Department of Energy;
J. Andrew Dodge, Sr., Director, Office of
Reliability, Federal Energy Regulatory Commission; and
Jim Robb, President and Chief Executive
Officer, North American Electric Reliability
Corporation.
IV. Committee Consideration
H.R. 362 was introduced in the House of Representatives and
referred to the Committee on Energy and Commerce on January 9,
2019. Subsequently, the bill was referred to the Subcommittee
on Energy on January 25, 2019. On May 16, 2019, the
Subcommittee on Energy met in open markup session, pursuant to
notice, to consider H.R. 362 and agreed to a motion by Mr.
Rush, Chairman of the Subcommittee, to forward the bill H.R.
362 favorably to the full Committee, without amendment, by a
voice vote.
On July 17, 2019, the full Committee on Energy and Commerce
met in open markup session, pursuant to notice, to consider
H.R. 362. No amendments were offered at full Committee.
Subsequently, the Committee agreed to a motion by Mr. Pallone,
Chairman, to order the bill H.R. 362 reported favorably to the
House, without amendment, by a voice vote, a quorum being
present.
V. Committee Votes
Clause 3(b) of rule XIII requires the Committee to list the
record votes on the motion to report legislation and amendments
thereto. There were no record votes taken in connection with
ordering H.R. 362 reported.
VI. Oversight Findings
Pursuant to clause 3(c)(1) of rule XIII and clause 2(b)(1)
of rule X of the Rules of the House of Representatives, the
oversight findings and recommendations of the Committee are
reflected in the descriptive portion of the report.
VII. New Budget Authority, Entitlement Authority, and Tax Expenditures
Pursuant to 3(c)(2) of rule XIII of the Rules of the House
of Representatives, the Committee adopts as its own the
estimate of new budget authority, entitlement authority, or tax
expenditures or revenues contained in the cost estimate
prepared by the Director of the Congressional Budget Office
pursuant to section 402 of the Congressional Budget Act of
1974.
The Committee has requested but not received from the
Director of the Congressional Budget Office a statement as to
whether this bill contains any new budget authority, spending
authority, credit authority, or an increase or decrease in
revenues or tax expenditures.
VIII. Federal Mandates Statement
The Committee adopts as its own the estimate of Federal
mandates prepared by the Director of the Congressional Budget
Office pursuant to section 423 of the Unfunded Mandates Reform
Act.
IX. Statement of General Performance Goals and Objectives
Pursuant to clause 3(c)(4) of rule XIII, the general
performance goal or objective of this legislation is to ensure
more effective implementation of the Department of Energy's
energy emergency and cybersecurity responsibilities.
X. Duplication of Federal Programs
Pursuant to clause 3(c)(5) of rule XIII, no provision of
H.R. 362 is known to be duplicative of another Federal program,
including any program that was included in a report to Congress
pursuant to section 21 of Public Law 111-139 or the most recent
Catalog of Federal Domestic Assistance.
XI. Committee Cost Estimate
Pursuant to clause 3(d)(1) of rule XIII, the Committee
adopts as its own the cost estimate prepared by the Director of
the Congressional Budget Office pursuant to section 402 of the
Congressional Budget Act of 1974.
XII. Earmarks, Limited Tax Benefits, and Limited Tariff Benefits
Pursuant to clause 9(e), 9(f), and 9(g) of rule XXI, the
Committee finds that H.R. 362 contains no earmarks, limited tax
benefits, or limited tariff benefits.
XIII. Advisory Committee Statement
No advisory committees within the meaning of section 5(b)
of the Federal Advisory Committee Act were created by this
legislation.
XIV. Applicability to Legislative Branch
The Committee finds that the legislation does not relate to
the terms and conditions of employment or access to public
services or accommodations within the meaning of section
102(b)(3) of the Congressional Accountability Act.
XV. Section-by-Section Analysis of the Legislation
Section 1. Short title
Section 1 provides That the Act may be cited as the
``Energy Emergency Leadership Act''.
Section 2. Functions assigned to assistant secretaries
Section 2 amends the Department of Energy Organization Act
to include energy emergency and energy security among the
functions that the Secretary of the Department of Energy shall
assign to an Assistant Secretary; provides that these functions
include responsibilities with respect to infrastructure,
cybersecurity, emerging threats, supply and emergency planning,
coordination, response, and restoration; and provides that
these functions also include the provision of technical
assistance, support, and response capabilities with respect to
energy security threats, risks, and incidents to State, local,
and tribal governments and the energy sector.
XVI. Changes in Existing Law Made by the Bill, as Reported
In compliance with clause 3(e) of rule XIII of the Rules of
the House of Representatives, changes in existing law made by
the bill, as reported, are shown as follows (new matter is
printed in italic and existing law in which no change is
proposed is shown in roman):
DEPARTMENT OF ENERGY ORGANIZATION ACT
* * * * * * *
TITLE II--ESTABLISHMENT OF THE DEPARTMENT
* * * * * * *
assistant secretaries
Sec. 203. (a) There shall be in the Department 8 Assistant
Secretaries, each of whom shall be appointed by the President,
by and with the advice and consent of the Senate; who shall be
compensated at the rate provided for at level IV of the
Executive Schedule under section 5315 of title 5, United States
Code; and who shall perform, in accordance with applicable law,
such of the functions transferred or delegated to, or vested
in, the Secretary as he shall prescribe in accordance with the
provisions of this Act. The functions which the Secretary shall
assign to the Assistant Secretaries include, but are not
limited to, the following:
(1) Energy resource applications, including functions
dealing with management of all forms of energy
production and utilization, including fuel supply,
electric power supply, enriched uranium production,
energy technology programs, and the management of
energy resource leasing procedures on Federal lands.
(2) Energy research and development functions,
including the responsibility for policy and management
of research and development for all aspects of--
(A) solar energy resources;
(B) geothermal energy resources;
(C) recycling energy resources;
(D) the fuel cycle for fossil energy
resources; and
(E) the fuel cycle for nuclear energy
resources.
(3) Environmental responsibilities and functions,
including advising the Secretary with respect to the
conformance of the Department's activities to
environmental protection laws and principles, and
conducting a comprehensive program of research and
development on the environmental effects of energy
technologies and programs.
(4) International programs and international policy
functions, including those functions which assist in
carrying out the international energy purposes
described in section 102 of this Act.
(6) Intergovernmental policies and relations
including responsibilities for assuring that national
energy policies are reflective of and responsible to
the needs of State and local governments, and for
assuring that other components of the Department
coordinate their activities with State and local
governments, where appropriate, and develop
intergovernmental communications with State and local
governments.
(7) Competition and consumer affairs, including
responsibilities for the promotion of competition in
the energy industry and for the protection of the
consuming public in the energy policymaking processes,
and assisting the Secretary in the formulation and
analysis of policies, rules, and regulations relating
to competition and consumer affairs.
(8) Nuclear waste management responsibilities,
including--
(A) the establishment of control over
existing Government facilities for the
treatment and storage of nuclear wastes,
including all containers, casks, buildings,
vehicles, equipment, and all other materials
associated with such facilities;
(B) the establishment of control over all
existing nuclear waste in the possession or
control of the Government and all commercial
nuclear waste presently stored on other than
the site of a licensed nuclear power electric
generating facility, except that nothing in
this paragraph shall alter or effect title to
such waste;
(C) the establishment of temporary and
permanent facilities for storage, management,
and ultimate disposal of nuclear wastes;
(D) the establishment of facilities for the
treatment of nuclear wastes;
(E) the establishment of programs for the
treatment, management, storage, and disposal of
nuclear wastes;
(F) the establishment of fees or user charges
for nuclear waste treatment or storage
facilities, including fees to be charged
Government agencies; and
(G) the promulgation of such rules and
regulations to implement the authority
described in this paragraph,
except that nothing in this section shall be construed
as granting to the Department regulatory functions
presently within the Nuclear Regulatory Commission, or
any additional functions than those already conferred
by law.
(9) Energy conservation functions, including the
development of comprehensive energy conservation
strategies for the Nation, the planning and
implementation of major research and demonstration
programs for the development of technologies and
processes to reduce total energy consumption, the
administration of voluntary and mandatory energy
conservation programs, and the dissemination to the
public of all available information on energy
conservation programs and measures.
(10) Power marketing functions, including
responsibility for marketing and transmission of
Federal power.
(11) Public and congressional relations functions,
including responsibilities for providing a continuing
liaison between the Department and the Congress and the
Department and the public.
(12) Energy emergency and energy security functions,
including--
(A) responsibilities with respect to
infrastructure, cybersecurity, emerging
threats, supply, and emergency planning,
coordination, response, and restoration; and
(B) upon request of a State, local, or tribal
government or energy sector entity, and in
consultation with other Federal agencies as
appropriate, provision of technical assistance,
support, and response capabilities with respect
to energy security threats, risks, and
incidents.
(b) At the time the name of any individual is submitted for
confirmation to the position of Assistant Secretary, the
President shall identify with particularity the function or
functions described in subsection (a) (or any portion thereof)
for which such individual will be responsible.
* * * * * * *