A number of my posts have started with a mention of something I read in EnergySec’s weekly newsletter. This isn’t because I’m being paid to promote the organization (although I think very highly of them), but because the newsletter often sees things that nobody else does (including me).
One feature of the newsletter is the Blog Roll, where Brandon Workentin, the very knowledgeable EnergySec staff member who edits the newsletter, discusses recent blog posts of interest to the ICS security audience. Two weeks ago, Brandon wrote about my post on the issue of whether VOIP phones should be considered BES Cyber Systems. He pointed out that, while nominally about VOIP, the post “is really about the need, in some cases, for entities and auditors to interpret a requirement ‘as if it had been written differently.’" As usual when Brandon writes about my posts, he hit the nail on the head; in fact, I don’t think I could have summarized the post any better than he did. This is why I always look forward to reading what he says about my posts: so I can learn what I meant when I wrote them!
In the penultimate paragraph of that post, I concluded (in reference to how VOIP systems should be treated under CIP-002 R1) that “…both the entity and the auditor need to insert two words into the (BES Cyber Asset) definition (Note: I could have gone on to say “in order to have a BCA definition that properly addresses VOIP phones and other ‘support systems’”).” I continued, “In other cases (and I will illustrate one case in another post that is coming soon), both the entity and the auditor need to ignore some of the wording in the requirements.” Well, the post that is “coming soon” is here! I will now discuss how one particular requirement in CIP v5/v6 – specifically, CIP-002-5.1 R1 with Attachment 1 – can only be properly followed by an entity or an auditor if part of the wording is ignored. But first some background.
In late April 2013, FERC surprised most in the industry (and certainly me), when they issued their NOPR saying they intended to approve CIP version 5 and have it supersede CIP v4, which was due to come into effect on April 1, 2014. Since they had approved v4 in April 2012 (which was also a surprise to most of us in the industry), I had been focusing on v4 in my blog posts, because after all v4 was now the law of the land, and v5 was still struggling to get the votes it needed to get approved (and there was a serious question whether it would ever be approved).
After the NOPR came out, I decided to write a series of posts on the CIP v5 standards, starting at the beginning with CIP-002-5.1. In this first post, I sat down with CIP-002 R1 and Attachment 1 and tried to piece together exactly how a NERC entity was to identify its BES Cyber Systems and then classify them as High, Medium or Low impact, along with identifying its assets that contain Low impact BCS.
But a funny thing happened as I worked on this post; no matter how much I scrutinized the wording of R1 and Attachment 1, I simply couldn’t put together a logical chain of steps that would produce the required result. I came to a point where no amount of logic could bridge the wide chasm caused by the contradictory nature of the wording I found in R1 and Attachment 1. I concluded that this chasm needed to be closed, in order for CIP v5 to be a set of standards that NERC entities could comply with and that NERC auditors could audit.
The primary problem[i] I identified in this post was in the wording of Attachment 1. This seems to be written under the implicit assumption that the entity has already identified BES Cyber Systems at all of its BES Assets – High, Medium and Low impact – before it even starts to classify them. In Sections 1 and 2 of Attachment 1, the entity is told to identify those BCS that meet the High and Medium impact criteria, respectively. And Section 3, where Lows are identified, seems to follow suit when it tells the entity to identify “BES Cyber Systems not included in Sections 1 or 2 above…” This clearly implies that the entity had a comprehensive BCS list at the beginning of this process. But there’s only one problem with this: The entity isn’t required to identify BCS at Low assets, so it never had a comprehensive list to start from (and therefore it can’t identify BCS “not included in Sections 1 or 2”). In fact, Requirement Part 1.3 of CIP-002 R1 (which “sends” the entity to Section 3 of Attachment 1 to figure out how to identify Low impact assets) says “A discrete list of low impact BES Cyber Systems is not required.”
This discovery led to my writing a series of posts over the summer of 2013, advocating that CIP-002-5.1 R1 and Attachment 1 be rewritten to bridge this chasm. Since I knew that NERC wouldn’t undertake this task on their own, I put my hopes in FERC – that they would order NERC to do this when they approved CIP v5. In fact, I even wrote out my proposed revised wording, and submitted that to FERC during the comment period on v5.
Of course, FERC didn’t take me up on my suggestion when they approved v5 in Order 791 on November 22, 2013 (50 years to the day – in fact, almost to the hour - after the assassination of President Kennedy in 1963. Just coincidence, you say? Well….). Instead, they ordered the four changes that led to CIP v6, none of which addressed this issue. I then pinned my hopes on the idea that NERC would find some way to “interpret” CIP-002 so that it would make sense, even though the actual wording wouldn’t change.
NERC did issue some “Lessons Learned” in 2014 and 2015 that tried to resolve ambiguities (although not the big one I was concerned about), but these were all withdrawn. But NERC came up against the reality that the Rules of Procedure only allow one way to change a standard: write a Standards Authorization Request, seat a Standards Drafting Team, and get to work drafting the new standard (which takes easily 3-4 years to produce results). And there is only one official way to interpret a standard: go through the Request for Interpretation process (which takes easily 2-3 years, with no guarantee of ultimate success. FERC remanded the last two CIP RFIs that were presented to it in 2012, although there may be a test soon when EnergySec’s RFI on Criterion 2.1 in Attachment 1 of CIP-002-5.1 is presented to them).
In the end, NERC admitted there needed to be a new version of CIP (although the fact that it is a new version seems never to be stated publicly. Instead, the drafting team to this day is called the “CIP Revisions” SDT, presumably to demonstrate that NERC has a great sense of humor), and indeed the new SDT started work last spring. The results of their work will be implemented in pieces over probably the next 2-6 years, although the fundamental problem I’m concerned with will most likely never be addressed at all.[ii]
You may wonder why, if there is such a basic contradiction in the wording of CIP-002-5.1 R1, the whole edifice of CIP v5 hasn’t come crashing down. After all, R1 can very easily be said to be the fundamental requirement in CIP v5 and v6 (and it will be in v7 as well). This is the requirement where the entity figures out what all the other requirements apply to. If the entity is lucky, their list of applicable assets and cyber assets is very small. If they’re not lucky, there is a huge list, and the entity had better figure on spending some significant portion of their total annual budget on CIP compliance for at least the next 5-10 years (a number of entities are doing exactly this. In fact, I know of one medium-sized entity that has allocated over ten percent of their entire annual revenues to cyber security and NERC CIP compliance, at least for this year).
So why didn’t CIP v5 collapse? There is certainly a lot of confusion over this requirement, and there continues to be confusion today; in my opinion, this confusion alone probably delayed many entities’ implementation of v5 for at least a year. But NERC entities and NERC auditors seem to be in fairly broad agreement now on how to comply with R1, as well as on what constitutes non-compliance with the requirement.
How did this agreement come about, given that applying strict logic doesn’t allow a single consistent interpretation of the wording of CIP-002 R1 and Attachment 1? It’s actually very simple: people reverted back to the overall framework for the asset identification process in CIP v1 – v4, even though that wasn’t directly supported by the language in CIP-002-5.1. To briefly (briefly for me, anyway!) summarize what happened:
- The bright-line criteria in Attachment 1 made their first appearance in CIP-002 version 4. If you read the v4 criteria, you will recognize the predecessors to most of the High and Medium impact criteria in v5. In v4, the criteria applied directly to assets, not cyber assets or BCS. BES assets that met one of the v4 criteria were Critical Assets and thus in scope for CIP v4; those assets that didn’t were out of scope for CIP v4 altogether (of course, there was no distinction between High and Medium impact assets. An asset was either critical or it wasn’t in scope for CIP v4 at all). Naturally, there were no criteria applying to Low impact assets, although some assets that would have been Critical Assets under v4 ended up as Lows under v5 (notably blackstart assets and Facilities).
- When the SDT started work on CIP v5 after completing v4 (the same SDT developed v2, v3, v4 and v5, although there were a number of personnel changes over the four years the team was in existence), they more or less imported the criteria directly from v4, even though in theory the whole purpose of Attachment 1 had changed. In CIP-002 version 5, Attachment 1 in theory provides criteria for identifying BES Cyber Systems, not Critical Assets as in v4. But instead of finding new criteria that applied to cyber systems, the SDT decided essentially to reuse the asset-based criteria from v4 for the High and Medium criteria in v5. However, they “front-ended” the criteria with language that tried to make them conform with the new purpose of Attachment 1 – to classify BES Cyber Systems.
- In retrospect, doing this was a big mistake. The SDT was using asset-based criteria to classify BCS, but the wording of Attachment 1 (and some of the wording of R1) sounded like the BCS were really being classified on their intrinsic BES impact. Question: How could the SDT have developed meaningful, measurable criteria that actually applied to BCS, not assets/Facilities? Answer: They would have had to bring in some measure of how important each BCS was to the BES.
In CIP v1-4, a Critical Cyber Asset was defined as one that is “essential to the operation of” a Critical Asset – so it was the impact on the asset that was important, not on the BES itself. In order to achieve the stated goal of CIP-002-5.1 R1, the v5 criteria (in Attachment 1) should have ranked the intrinsic “essentialness” of each BCS to the BES itself, not to an asset. I admit this would have been very hard to do. But of course, the fact that it would have been hard simply reflects a point that I argued with SDT members in 2011 and 2012: It doesn’t make much sense to talk about the intrinsic impact of a BCS on the BES.[iii] Rather, the impact of a BCS is almost always only through the asset or Facility it controls or supports. It is those assets or Facilities, not the BCS themselves, that should be classified, as was the case in v1-4. As it is, I will demonstrate below that literally the entire NERC community has reverted to the v1-4 method of classifying assets, not BCS, even though this involves ignoring a lot of the wording in CIP-002-5.1 R1 and Attachment 1.
- I think the SDT made this mistake because they knew it was now verboten[iv] to require entities to identify BCS at Low impact assets[v]; so they had to let the entity simply identify Low assets, not Low BCS. This meant they had to make all the Attachment 1 criteria (High, Medium and Low) apply to assets, not BCS. If they didn’t do this, how could an entity possibly identify its Low assets, since it hasn’t previously identified its High and Medium assets? Unfortunately, the SDT at the same time tried to maintain the fiction that Attachment 1 was really about classifying BCS, not assets, which is why the literal wording of Attachment 1 is in direct contradiction to the way that 99% of NERC entities and auditors are interpreting it (and the way that IMHO the SDT members intended it to be interpreted).
- What the SDT should have done was go back to the CIP v1-4 model: First the entity identifies its most important assets in scope. These were Critical Assets in v1-4, but High or Medium assets/Facilities in v5 (and in v5, the entity uses the criteria in Attachment 1 to classify High vs. Medium assets). Next, the entity identifies the Critical Cyber Assets (in v1-4) or Medium or High BES Cyber Systems (in v5) associated with those assets (with High or Medium BCS defined as those associated with/located at High or Medium assets/Facilities respectively). Finally, the entity subtracts its Medium and High assets from its total list of BES assets; the remaining assets are Lows (of course, there is no requirement to identify BCS at Lows). This wouldn’t have been terribly elegant, but it would have been logically consistent.
- However, even though the sequence I just described in the previous paragraph isn’t in the actual wording of CIP-002-5.1, it is in fact how literally every entity (that I know of) is complying with CIP v5/v6, and it is how literally every auditor (again, that I know of) is auditing CIP-002-5.1 R1. Many, if not most, of the entities, and probably more than a few auditors, are quite unaware that the compliance methodology they are following (or auditing against) isn’t in the actual wording of the standard. But that doesn’t really matter. There isn’t much confusion over this issue now, since this consensus has developed in spite of the wording of R1 and Attachment 1 (although there was a lot of confusion over these and other parts of CIP v5 in 2014, when many entities lost part or all of a year in their v5 compliance efforts, as they tried to figure out what the requirements actually meant, and waited for definitive guidance from NERC, which never came).
To finish my long sermon, this is another case where both entities and auditors cannot simply follow the strict wording of the CIP v5/v6 standards in order to comply with and audit them. In the VOIP case in my earlier post, I stated that what almost all entities and auditors are doing is implicitly inserting two words into the BES Cyber Asset definition – when they do that, confusion over how to classify VOIP and other “support systems” melts away. In the case of CIP-002 R1 and Attachment 1, I have just tried to show that the only way to overcome the logical inconsistency of the wording is for entities and auditors to ignore a lot of the actual wording and substitute alternate wording – and they have done that with a remarkable degree of unanimity.
So what’s the big deal with all of this? Since neither of these issues is causing entities to be out of CIP compliance (or to devote a lot of resources to something which they have mistakenly identified as required for compliance), what’s the problem? Aren’t these both simply dead issues?
One problem is that – in my opinion – the need to either supplement or ignore some of the wording of CIP v5 (and especially in CIP-002 R1, the fundamental requirement of CIP v5 and v6) makes the standards unenforceable in what I call the strict sense: If an entity is fined for not properly identifying BCS and challenges that fine on the grounds that the wording of CIP-002-5.1 R1 is contradictory, I think the fine will be thrown out by any judge who spends ten minutes reading the requirement. But since no NERC entity has actually ever challenged a CIP fine in court, I admit this is a fairly theoretical issue.[vi]
The real problem is that sometimes entities take the words of CIP-002 R1 and Attachment 1 literally, and end up mis-identifying BCS and assets for that reason. In my next post, I will provide an example that I recently came across, where this is exactly what happened.
The views and opinions expressed here are my own and don’t necessarily represent the views or opinions of Deloitte Advisory.
[i] I actually pointed out two fundamental problems with CIP-002-5.1 R1 in the post. The first (which I said was of lesser importance) had to do with what I thought at the time was inconsistent use of the terms “asset” and “Facility”. I later learned that this wording is actually not inconsistent, although it is terribly confusing. In practice, very few entities – and perhaps very few auditors – understand that these two terms actually refer to different things. This without doubt has led many entities to over-identify Medium BCS at Transmission substations, although a few large Transmission entities have told me that the greatly increased effort that would be required, to properly take the word “Facilities” into account to reduce the number of BCS, outweighs the benefit that would be derived from having fewer Medium BCS in the first place.
[ii] I haven’t even advocated that the SDT take up the issue discussed in this post. It would require a huge effort and multiple ballots, and this effort alone would probably push the final implementation of v7 back another year or so. I have the greatest admiration for this SDT, but they have a huge amount on their plate as it is, and I am becoming convinced that they will never succeed in addressing one of the biggest items on that plate (as long as the CIP standards remain basically prescriptive). More on that topic coming soon to a blog near you.
[iii] In fact, I remember a discussion on an SDT call in 2012, when I asked the chairman of the SDT to name a cyber asset that directly impacted the BES - not indirectly through an asset or Facility. He came up with “leak detectors”, a device I hadn’t heard of. Evidently, these sit directly on a line and are not located within a substation or other asset. However, to require that all cyber assets be evaluated for their BES impact, not their impact on an asset/Facility, solely because there are one or two BCS that actually do directly impact the BES, is the textbook example of the tail wagging the dog. Yet this is in fact the stated purpose of CIP-002 R1: identify and classify BES Cyber Systems based on their impact on the BES. Ironically, those leak detectors wouldn’t be in scope for CIP v5/v6 anyway, since the only BCS that are in scope are those located at one of the six asset types listed in R1.
[iv] Here is why it was forbidden: In 2009, the SDT put out a “concept paper” that first introduced the ideas of BES Cyber System and the BES Reliability Operating Services (although the latter were called “BES Reliability Functions” in the paper). While I think both of these are good concepts, I think that pretending that the impact of a BCS on an asset has nothing to do with whether a Cyber Asset impacts the BES – while at the same time including criteria in Attachment 1 that are entirely asset (or Facility)-based – is the Fundamental Sin of CIP v5, and is the reason it will never be enforceable in the strong sense.
[v] To comply with the first draft of CIP-002 v5, which was posted for comment in November 2011, the entity would literally have had to start their BCS classification effort by identifying BCS at all BES assets – High, Medium and Low impact. Then they would go through Attachment 1 and classify each BCS as High, Medium or Low impact. Of course, NERC entities weren’t too excited about this since it meant identifying all Low BCS. The first draft went down to resounding defeat, with none of the standards receiving much more than a 20% positive vote (I wrote a post pointing this out in December 2011. It was posted on a Honeywell blog that is no longer available online. If you would like to see that post, send me an email at email@example.com). At this point, the SDT realized they had to make it explicit that BCS didn’t have to be identified at Lows. Unfortunately, rather than completely rewriting CIP-002 R1 and Attachment 1 so that they took account of that new reality, the SDT kind of tinkered around the edges but left the basic structure in place. The result was the logically inconsistent R1 and Attachment 1 that we know and love so dearly today.
[vi] Although I do believe that if this ever happens, the result will be disastrous. Think of what would happen if a judge suddenly invalidated CIP-002-5.1 R1, and there was no longer a legally-approved way to identify and classify BES Cyber Systems. In my opinion, this would effectively invalidate all of CIP v5 and v6 (and, by the time that happens, probably v7). What would NERC do then? Go back to v3? Throw in the towel on regulating cyber security? Beats me.