[Federal Register Volume 86, Number 14 (Monday, January 25, 2021)]
[Presidential Documents]
[Pages 6837-6842]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-01714]




                        Presidential Documents 



Federal Register / Vol. 86, No. 14 / Monday, January 25, 2021 / 
Presidential Documents

[[Page 6837]]


                Executive Order 13984 of January 19, 2021

                
Taking Additional Steps To Address the National 
                Emergency With Respect to Significant Malicious Cyber-
                Enabled Activities

                By the authority vested in me as President by the 
                Constitution and the laws of the United States of 
                America, including the International Emergency Economic 
                Powers Act (50 U.S.C. 1701 et seq.) (IEEPA), the 
                National Emergencies Act (50 U.S.C. 1601 et seq.) 
                (NEA), and section 301 of title 3, United States Code:

                I, DONALD J. TRUMP, President of the United States of 
                America, find that additional steps must be taken to 
                deal with the national emergency related to significant 
                malicious cyber-enabled activities declared in 
                Executive Order 13694 of April 1, 2015 (Blocking the 
                Property of Certain Persons Engaging in Significant 
                Malicious Cyber-Enabled Activities), as amended, to 
                address the use of United States Infrastructure as a 
                Service (IaaS) products by foreign malicious cyber 
                actors. IaaS products provide persons the ability to 
                run software and store data on servers offered for rent 
                or lease without responsibility for the maintenance and 
                operating costs of those servers. Foreign malicious 
                cyber actors aim to harm the United States economy 
                through the theft of intellectual property and 
                sensitive data and to threaten national security by 
                targeting United States critical infrastructure for 
                malicious cyber-enabled activities. Foreign actors use 
                United States IaaS products for a variety of tasks in 
                carrying out malicious cyber-enabled activities, which 
                makes it extremely difficult for United States 
                officials to track and obtain information through legal 
                process before these foreign actors transition to 
                replacement infrastructure and destroy evidence of 
                their prior activities; foreign resellers of United 
                States IaaS products make it easier for foreign actors 
                to access these products and evade detection. This 
                order provides authority to impose record-keeping 
                obligations with respect to foreign transactions. To 
                address these threats, to deter foreign malicious cyber 
                actors' use of United States IaaS products, and to 
                assist in the investigation of transactions involving 
                foreign malicious cyber actors, the United States must 
                ensure that providers offering United States IaaS 
                products verify the identity of persons obtaining an 
                IaaS account (``Account'') for the provision of these 
                products and maintain records of those transactions. In 
                appropriate circumstances, to further protect against 
                malicious cyber-enabled activities, the United States 
                must also limit certain foreign actors' access to 
                United States IaaS products. Further, the United States 
                must encourage more robust cooperation among United 
                States IaaS providers, including by increasing 
                voluntary information sharing, to bolster efforts to 
                thwart the actions of foreign malicious cyber actors.

                Accordingly, I hereby order:

                Section 1. Verification of Identity. Within 180 days of 
                the date of this order, the Secretary of Commerce 
                (Secretary) shall propose for notice and comment 
                regulations that require United States IaaS providers 
                to verify the identity of a foreign person that obtains 
                an Account. These regulations shall, at a minimum:

                    (a) set forth the minimum standards that United 
                States IaaS providers must adopt to verify the identity 
                of a foreign person in connection with the opening of 
                an Account or the maintenance of an existing Account, 
                including:

[[Page 6838]]

(i) the types of documentation and procedures required to verify the 
identity of any foreign person acting as a lessee or sub-lessee of these 
products or services;

(ii) records that United States IaaS providers must securely maintain 
regarding a foreign person that obtains an Account, including information 
establishing:

  (A) the identity of such foreign person and the person's information, 
including name, national identification number, and address;

  (B) means and source of payment (including any associated financial 
institution and other identifiers such as credit card number, account 
number, customer identifier, transaction identifiers, or virtual currency 
wallet or wallet address identifier);

  (C) electronic mail address and telephonic contact information, used to 
verify a foreign person's identity; and

  (D) internet Protocol addresses used for access or administration and the 
date and time of each such access or administrative action, related to 
ongoing verification of such foreign person's ownership of such an Account; 
and

(iii) methods for limiting all third-party access to the information 
described in this subsection, except insofar as such access is otherwise 
consistent with this order and allowed under applicable law;

                    (b) take into consideration the type of Account 
                maintained by United States IaaS providers, methods of 
                opening an Account, and types of identifying 
                information available to accomplish the objectives of 
                identifying foreign malicious cyber actors using any 
                such products and avoiding the imposition of an undue 
                burden on such providers; and
                    (c) permit the Secretary, in accordance with such 
                standards and procedures as the Secretary may delineate 
                and in consultation with the Secretary of Defense, the 
                Attorney General, the Secretary of Homeland Security, 
                and the Director of National Intelligence, to exempt 
                any United States IaaS provider, or any specific type 
                of Account or lessee, from the requirements of any 
                regulation issued pursuant to this section. Such 
                standards and procedures may include a finding by the 
                Secretary that a provider, Account, or lessee complies 
                with security best practices to otherwise deter abuse 
                of IaaS products.

                Sec. 2. Special Measures for Certain Foreign 
                Jurisdictions or Foreign Persons. (a) Within 180 days 
                of the date of this order, the Secretary shall propose 
                for notice and comment regulations that require United 
                States IaaS providers to take any of the special 
                measures described in subsection (d) of this section if 
                the Secretary, in consultation with the Secretary of 
                State, the Secretary of the Treasury, the Secretary of 
                Defense, the Attorney General, the Secretary of 
                Homeland Security, the Director of National 
                Intelligence and, as the Secretary deems appropriate, 
                the heads of other executive departments and agencies 
                (agencies), finds:

(i) that reasonable grounds exist for concluding that a foreign 
jurisdiction has any significant number of foreign persons offering United 
States IaaS products that are used for malicious cyber-enabled activities 
or any significant number of foreign persons directly obtaining United 
States IaaS products for use in malicious cyber-enabled activities, in 
accordance with subsection (b) of this section; or

(ii) that reasonable grounds exist for concluding that a foreign person has 
established a pattern of conduct of offering United States IaaS products 
that are used for malicious cyber-enabled activities or directly obtaining 
United States IaaS products for use in malicious cyber-enabled activities.

                    (b) In making findings under subsection (a) of this 
                section on the use of United States IaaS products in 
                malicious cyber-enabled activities, the Secretary shall 
                consider any information the Secretary determines to be 
                relevant, as well as information pertaining to the 
                following factors:

[[Page 6839]]

(i) Factors related to a particular foreign jurisdiction, including:

  (A) evidence that foreign malicious cyber actors have obtained United 
States IaaS products from persons offering United States IaaS products in 
that foreign jurisdiction, including whether such actors obtained such IaaS 
products through Reseller Accounts;

  (B) the extent to which that foreign jurisdiction is a source of 
malicious cyber-enabled activities; and

  (C) Whether the United States has a mutual legal assistance treaty with 
that foreign jurisdiction, and the experience of United States law 
enforcement officials and regulatory officials in obtaining information 
about activities involving United States IaaS products originating in or 
routed through such foreign jurisdiction; and

(ii) Factors related to a particular foreign person, including:

  (A) the extent to which a foreign person uses United States IaaS products 
to conduct, facilitate, or promote malicious cyber-enabled activities;

  (B) the extent to which United States IaaS products offered by a foreign 
person are used to facilitate or promote malicious cyber-enabled 
activities;

  (C) the extent to which United States IaaS products offered by a foreign 
person are used for legitimate business purposes in the jurisdiction; and

  (D) the extent to which actions short of the imposition of special 
measures pursuant to subsection (d) of this section are sufficient, with 
respect to transactions involving the foreign person offering United States 
IaaS products, to guard against malicious cyber-enabled activities.

                    (c) In selecting which special measure or measures 
                to take under this section, the Secretary shall 
                consider:

(i) whether the imposition of any special measure would create a 
significant competitive disadvantage, including any undue cost or burden 
associated with compliance, for United States IaaS providers;

(ii) the extent to which the imposition of any special measure or the 
timing of the special measure would have a significant adverse effect on 
legitimate business activities involving the particular foreign 
jurisdiction or foreign person; and

(iii) the effect of any special measure on United States national security, 
law enforcement investigations, or foreign policy.

                    (d) The special measures referred to in subsections 
                (a), (b), and (c) of this section are as follows:

(i) Prohibitions or Conditions on Accounts within Certain Foreign 
Jurisdictions: The Secretary may prohibit or impose conditions on the 
opening or maintaining with any United States IaaS provider of an Account, 
including a Reseller Account, by any foreign person located in a foreign 
jurisdiction found to have any significant number of foreign persons 
offering United States IaaS products used for malicious cyber-enabled 
activities, or by any United States IaaS provider for or on behalf of a 
foreign person; and

(ii) Prohibitions or Conditions on Certain Foreign Persons: The Secretary 
may prohibit or impose conditions on the opening or maintaining in the 
United States of an Account, including a Reseller Account, by any United 
States IaaS provider for or on behalf of a foreign person, if such an 
Account involves any such foreign person found to be offering United States 
IaaS products used in malicious cyber-enabled activities or directly 
obtaining United States IaaS products for use in malicious cyber-enabled 
activities.

                    (e) The Secretary shall not impose requirements for 
                United States IaaS providers to take any of the special 
                measures described in subsection (d) of this section 
                earlier than 180 days following the issuance of final 
                regulations described in section 1 of this order.

[[Page 6840]]

                Sec. 3. Recommendations for Cooperative Efforts to 
                Deter the Abuse of United States IaaS Products. (a) 
                Within 120 days of the date of this order, the Attorney 
                General and the Secretary of Homeland Security, in 
                coordination with the Secretary and, as the Attorney 
                General and the Secretary of Homeland Security deem 
                appropriate, the heads of other agencies, shall engage 
                and solicit feedback from industry on how to increase 
                information sharing and collaboration among IaaS 
                providers and between IaaS providers and the agencies 
                to inform recommendations under subsection (b) of this 
                section.

                    (b) Within 240 days of the date of this order, the 
                Attorney General and the Secretary of Homeland 
                Security, in coordination with the Secretary, and, as 
                the Attorney General and Secretary of Homeland Security 
                deem appropriate, the heads of other agencies, shall 
                develop and submit to the President a report containing 
                recommendations to encourage:

(i) voluntary information sharing and collaboration, among United States 
IaaS providers; and

(ii) information sharing between United States IaaS providers and 
appropriate agencies, including the reporting of incidents, crimes, and 
other threats to national security, for the purpose of preventing further 
harm to the United States.

                    (c) The report and recommendations provided under 
                subsection (b) of this section shall consider existing 
                mechanisms for such sharing and collaboration, 
                including the Cybersecurity Information Sharing Act (6 
                U.S.C. 1503 et seq.), and shall identify any gaps in 
                current law, policy, or procedures. The report shall 
                also include:

(i) information related to the operations of foreign malicious cyber 
actors, the means by which such actors use IaaS products within the United 
States, malicious capabilities and tradecraft, and the extent to which 
persons in the United States are compromised or unwittingly involved in 
such activity;

(ii) recommendations for liability protections beyond those in existing law 
that may be needed to encourage United States IaaS providers to share 
information among each other and with the United States Government; and

(iii) recommendations for facilitating the detection and identification of 
Accounts and activities that involve foreign malicious cyber actors.

                Sec. 4. Ensuring Sufficient Resources for 
                Implementation. The Secretary, in consultation with the 
                heads of such agencies as the Secretary deems 
                appropriate, shall identify funding requirements to 
                support the efforts described in this order and 
                incorporate such requirements into its annual budget 
                submissions to the Office of Management and Budget.

                Sec. 5. Definitions. For the purposes of this order, 
                the following definitions apply:

                    (a) The term ``entity'' means a partnership, 
                association, trust, joint venture, corporation, group, 
                subgroup, or other organization;
                    (b) The term ``foreign jurisdiction'' means any 
                country, subnational territory, or region, other than 
                those subject to the civil or military jurisdiction of 
                the United States, in which any person or group of 
                persons exercises sovereign de facto or de jure 
                authority, including any such country, subnational 
                territory, or region in which a person or group of 
                persons is assuming to exercise governmental authority 
                whether such a person or group of persons has or has 
                not been recognized by the United States;
                    (c) The term ``foreign person'' means a person that 
                is not a United States person;
                    (d) The term ``Infrastructure as a Service 
                Account'' or ``Account'' means a formal business 
                relationship established to provide IaaS products to a 
                person in which details of such transactions are 
                recorded.
                    (e) The term ``Infrastructure as a Service 
                Product'' means any product or service offered to a 
                consumer, including complimentary or ``trial'' 
                offerings,

[[Page 6841]]

                that provides processing, storage, networks, or other 
                fundamental computing resources, and with which the 
                consumer is able to deploy and run software that is not 
                predefined, including operating systems and 
                applications. The consumer typically does not manage or 
                control most of the underlying hardware but has control 
                over the operating systems, storage, and any deployed 
                applications. The term is inclusive of ``managed'' 
                products or services, in which the provider is 
                responsible for some aspects of system configuration or 
                maintenance, and ``unmanaged'' products or services, in 
                which the provider is only responsible for ensuring 
                that the product is available to the consumer. The term 
                is also inclusive of ``virtualized'' products and 
                services, in which the computing resources of a 
                physical machine are split between virtualized 
                computers accessible over the internet (e.g., ``virtual 
                private servers''), and ``dedicated'' products or 
                services in which the total computing resources of a 
                physical machine are provided to a single person (e.g., 
                ``bare-metal'' servers);
                    (f) The term ``malicious cyber-enabled activities'' 
                refers to activities, other than those authorized by or 
                in accordance with United States law that seek to 
                compromise or impair the confidentiality, integrity, or 
                availability of computer, information, or 
                communications systems, networks, physical or virtual 
                infrastructure controlled by computers or information 
                systems, or information resident thereon;
                    (g) The term ``person'' means an individual or 
                entity;
                    (h) The term ``Reseller Account'' means an 
                Infrastructure as a Service Account established to 
                provide IaaS products to a person who will then offer 
                those products subsequently, in whole or in part, to a 
                third party.
                    (i) The term ``United States Infrastructure as a 
                Service Product'' means any Infrastructure as a Service 
                Product owned by any United States person or operated 
                within the territory of the United States of America;
                    (j) The term ``United States Infrastructure as a 
                Service Provider'' means any United States Person that 
                offers any Infrastructure as a Service Product;
                    (k) The term ``United States person'' means any 
                United States citizen, lawful permanent resident of the 
                United States as defined by the Immigration and 
                Nationality Act, entity organized under the laws of the 
                United States or any jurisdiction within the United 
                States (including foreign branches), or any person 
                located in the United States;

                Sec. 6. Amendment to Reporting Authorizations. Section 
                (9) of Executive Order 13694, as amended, is further 
                amended to read as follows:

                    ``Sec. 9. The Secretary of the Treasury, in 
                consultation with the Secretary of State, the Attorney 
                General, and the Secretary of Commerce, is hereby 
                authorized to submit the recurring and final reports to 
                the Congress on the national emergency declared in this 
                order, consistent with section 401(c) of the NEA (50 
                U.S.C. 1641(c)) and section 204(c) of IEEPA (50 U.S.C. 
                1703(c)).''

                Sec. 7. General Provisions. (a) The Secretary, in 
                consultation with the heads of such other agencies as 
                the Secretary deems appropriate, is hereby authorized 
                to take such actions, including the promulgation of 
                rules and regulations, and employ all powers granted to 
                the President by IEEPA as may be necessary to carry out 
                the purposes of this order. The Secretary may 
                redelegate any of these functions to other officers 
                within the Department of Commerce, consistent with 
                applicable law. All departments and agencies of the 
                United States Government are hereby directed to take 
                all appropriate measures within their authority to 
                carry out the provisions of this order.

                    (b) Nothing in this order shall be construed to 
                impair or otherwise affect:

(i) the authority granted by law to an executive department or agency, or 
the head thereof; or

(ii) the functions of the Director of the Office of Management and Budget 
relating to budgetary, administrative, or legislative proposals.

                    (c) This order shall be implemented consistent with 
                applicable law and subject to the availability of 
                appropriations.

[[Page 6842]]

                    (d) Nothing in this order prohibits or otherwise 
                restricts authorized intelligence, military, law 
                enforcement, or other activities in furtherance of 
                national security or public safety activities.
                    (e) This order is not intended to, and does not, 
                create any right or benefit, substantive or procedural, 
                enforceable at law or in equity by any party against 
                the United States, its departments, agencies, or 
                entities, its officers, employees, or agents, or any 
                other person.
                <GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT>
                
                    (Presidential Sig.)

                THE WHITE HOUSE,

                    January 19, 2021.

[FR Doc. 2021-01714
Filed 1-22-21; 8:45 am]
Billing code 3295-F1-P