II 

Calendar No. 196 

116TH CONGRESS 

1ST SESSION S. 1869 

[Report No. 116–92] 

To require the disclosure of ownership of high-security space leased to 

accommodate a Federal agency, and for other purposes. 

IN THE SENATE OF THE UNITED STATES 

JUNE 13, 2019 

Mr. PETERS (for himself and Mr. PORTMAN) introduced the following bill; 

which was read twice and referred to the Committee on Homeland Security and Governmental Affairs 

SEPTEMBER 10, 2019 

Reported by Mr. JOHNSON, with an amendment 

[Strike out all after the enacting clause and insert the part printed in italic] 

A BILL 

To require the disclosure of ownership of high-security space 

leased to accommodate a Federal agency, and for other 

purposes. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. SHORT TITLE; FINDINGS. 

4 (a) SHORT TITLE.—This Act may be cited as the 

5 ‘‘Secure Federal Leases from Espionage And Suspicious 


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1 Entanglements Act’’ or the ‘‘Secure Federal LEASEs 

2 Act’’. 

3 (b) FINDINGS.—Congress finds that— 

4 (1) the Government Accountability Office has 

5 reported that the Federal Government often leases 

6 high-security space from private sector landlords; 

7 (2) the General Services Administration collects 

8 highest-level and immediate ownership information 

9 through the System of Award Management, but it is 

10 not currently required to collect beneficial ownership 

11 information and lacks an adequate system for doing 

12 so; 

13 (3) the General Services Administration and 

14 Federal agencies with leasing authority may not 

15 know if foreign owners have a stake in the buildings 

16 leased by the agencies, either through foreign-incor17 porated legal entities or through ownership in 

18 United States-incorporated legal entities, even when 

19 the leased space is used for classified operations or 

20 to store sensitive data; and 

21 (4) according to a report of the Government 

22 Accountability Office, dated January 2017, that ex23 amined the risks of foreign ownership of Govern24 ment-leased real estate, ‘‘leasing space in foreign25 owned buildings could present security risks such as 


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1 espionage and unauthorized cyber and physical ac2 cess’’. 

3 SEC. 2. DEFINITIONS. 

4 In this Act: 

5 (1) BENEFICIAL OWNER.— 

6 (A) IN GENERAL.—Except as provided in 

7 subparagraph (B), the term ‘‘beneficial owner’’ 

8 means, with respect to a covered entity, each 

9 natural person who, directly or indirectly, 

10 through any contract, arrangement, under11 standing, relationship, or otherwise— 

12 (i) exercises control over the covered 

13 entity; or 

14 (ii) has a substantial interest in or re15 ceives substantial economic benefits from 

16 the assets of the covered entity. 

17 (B) EXCEPTIONS.—The term ‘‘beneficial 

18 owner’’ does not include, with respect to a cov19 ered entity— 

20 (i) a minor child; 

21 (ii) a person acting as a nominee, 

22 intermediary, custodian, or agent on behalf 

23 of another person; 

24 (iii) a person acting solely as an em25 ployee of the covered entity and whose conVerDate Sep 11 2014 22:13 Sep 10, 2019 Jkt 089200 PO 00000 Frm 00003 Fmt 6652 Sfmt 6401 E:\BILLS\S1869.RS S1869

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1 trol over or economic benefits from the 

2 covered entity derives solely from the em3 ployment status of the person; 

4 (iv) a person whose only interest in 

5 the covered entity is through a right of in6 heritance, unless the person also meets the 

7 requirements of subparagraph (A); or 

8 (v) a creditor of the covered entity, 

9 unless the creditor also meets the require10 ments of subparagraph (A). 

11 (C) ANTI-ABUSE RULE.—The exceptions 

12 under subparagraph (B) shall not apply if used 

13 for the purpose of evading, circumventing, or 

14 abusing the requirements of this Act. 

15 (2) CLOSELY HELD.—The term ‘‘closely held’’ 

16 means a fund that has less than 100 natural persons 

17 as direct or indirect investors. 

18 (3) CONTROL.—The term ‘‘control’’ means, 

19 with respect to a covered entity— 

20 (A) having the authority or ability to de21 termine how a covered entity is utilized; or 

22 (B) having some decision-making power for 

23 the use of a covered entity. 


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1 (4) COVERED ENTITY.—The term ‘‘covered en2 tity’’ means a person, copartnership, corporation, or 

3 other public or private entity. 

4 (5) EXECUTIVE AGENCY.—The term ‘‘Executive 

5 agency’’ has the meaning given the term in section 

6 105 of title 5, United States Code. 

7 (6) FEDERAL AGENCY.—The term ‘‘Federal 

8 agency’’ means any Executive agency or any estab9 lishment in the legislative or judicial branch of the 

10 Government. 

11 (7) FEDERAL LESSEE.—The term ‘‘Federal les12 see’’ means the Administrator of General Services, 

13 the Architect of the Capitol, or the head of any Fed14 eral agency, other than the Department of Defense, 

15 that has independent statutory leasing authority. 

16 (8) FOREIGN ENTITY.—The term ‘‘foreign enti17 ty’’ means an entity that is headquartered or incor18 porated in a country that is not the United States. 

19 (9) FOREIGN PERSON.—The term ‘‘foreign per20 son’’ means an individual who is not a United States 

21 person. 

22 (10) FEDERAL TENANT.—The term ‘‘Federal 

23 tenant’’ means a Federal agency that is occupying 

24 or will occupy a high-security leased space for which 


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1 a lease agreement has been secured on behalf of the 

2 Federal agency. 

3 (11) HIGH-SECURITY LEASED SPACE.—The 

4 term ‘‘high-security leased space’’ means a space 

5 leased by a Federal lessee that— 

6 (A) will be occupied by Federal employees 

7 for nonmilitary activities; and 

8 (B) has a facility security level of III, IV, 

9 or V, as determined by the Federal tenant in 

10 consultation with the Interagency Security 

11 Committee, the Department of Homeland Secu12 rity, and the General Services Administration. 

13 (12) HIGHEST-LEVEL OWNER.—The term 

14 ‘‘highest-level owner’’ means the entity that owns or 

15 controls an immediate owner of the offeror of a 

16 lease, or that owns or controls 1 or more entities 

17 that control an immediate owner of the offeror. 

18 (13) IMMEDIATE OWNER.—The term ‘‘imme19 diate owner’’ means an entity, other than the offeror 

20 of a lease, that has direct control of the offeror, in21 cluding ownership or interlocking management, iden22 tity of interests among family members, shared fa23 cilities and equipment, and the common use of em24 ployees. 


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1 (14) SUBSTANTIAL ECONOMIC BENEFITS.—The 

2 term ‘‘substantial economic benefits’’ means, with 

3 respect to a natural person described in paragraph 

4 (1)(A)(ii), having an entitlement to the funds or as5 sets of a covered entity that, as a practical matter, 

6 enables the person, directly or indirectly, to control, 

7 manage, or direct the covered entity. 

8 (15) UNITED STATES PERSON.—The term 

9 ‘‘United States person’’ means an individual who— 

10 (A) is a citizen of the United States; or 

11 (B) is an alien lawfully admitted for per12 manent residence in the United States. 

13 (16) WIDELY HELD.—The term ‘‘widely held’’ 

14 means a fund that has not less than 100 natural 

15 persons as direct or indirect investors. 

16 SEC. 3. DISCLOSURE OF OWNERSHIP OF HIGH-SECURITY 

17 SPACE LEASED FOR FEDERAL AGENCIES. 

18 (a) REQUIRED DISCLOSURES.—Before entering into 

19 a lease agreement with a covered entity or approving a 

20 novation agreement with a covered entity involving a 

21 change of ownership under a lease that will be used for 

22 high-security leased space, a Federal lessee shall require 

23 the covered entity to identify and disclose whether the im24 mediate or highest-level owner of the leased space, includ25 ing an entity involved in the financing thereof, is a foreign 


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1 person or a foreign entity, including the country associated 

2 with the ownership entity. 

3 (b) NOTIFICATION.—If a disclosure is made under 

4 subsection (a), the Federal lessee shall notify the Federal 

5 tenant of the building or other improvement that will be 

6 used for high-security space in writing, and consult with 

7 the Federal tenant, regarding security concerns and nec8 essary mitigation measures, if any, prior to award of the 

9 lease or approval of the novation agreement. 

10 (c) TIMING.— 

11 (1) IN GENERAL.—A Federal lessee shall re12 quire a covered entity to provide the information de13 scribed in subsection (a) to a covered entity when 

14 first submitting a proposal in response to a solicita15 tion for offers issued by the Federal lessee. 

16 (2) UPDATES.—A Federal lessee shall require a 

17 covered entity to update a submission of the infor18 mation described in subsection (a) annually, begin19 ning on the date that is 1 year after the date on 

20 which the Federal tenant began occupancy, with in21 formation including— 

22 (A) the list of immediate or highest-level 

23 owners of the covered entity during the pre24 ceding 1-year period of Federal occupancy; or 


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1 (B) the information required to be pro2 vided relating to each such immediate or high3 est-level owner. 

4 SEC. 4. IMMEDIATE, HIGHEST-LEVEL, AND BENEFICIAL 

5 OWNERS. 

6 (a) PROPOSAL.—The General Services Administra7 tion shall develop a Government-wide proposal for identi8 fying all immediate, highest-level, or beneficial owners of 

9 high-security leased spaces before entering into a lease 

10 agreement with a covered entity for the accommodation 

11 of a Federal tenant in a high-security leased space. 

12 (b) REQUIREMENTS.— 

13 (1) CONTENTS.—The proposal described in sub14 section (a) shall include a process for collecting and 

15 utilizing the following information on each imme16 diate, highest-level, or beneficial owner of a high-se17 curity leased space: 

18 (A) Name. 

19 (B) Current residential or business street 

20 address. 

21 (C) An identifying number or document 

22 that verifies identity as a United States person 

23 or foreign person. 

24 (2) DISCLOSURES AND NOTIFICATIONS.—The 

25 proposal described in subsection (a) shall— 


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1 (A) require the disclosure of any imme2 diate, highest-level, or beneficial owner that is a 

3 foreign person; 

4 (B) require that, if the Federal lessee is 

5 assigning the building or other improvement 

6 that will be used for high-security space to a 

7 Federal tenant, the Federal tenant shall be no8 tified of the disclosure described in subpara9 graph (A); and 

10 (C) exclude collecting ownership informa11 tion on widely held pooled-investment vehicles, 

12 mutual funds, trusts, or other pooled-invest13 ment vehicles; and 

14 (D) include ownership information on 

15 closely held pooled-investment vehicles, mutual 

16 funds, trusts, or other pooled-investment vehi17 cles. 

18 (c) REPORT AND IMPLEMENTATION.—The General 

19 Services Administration shall— 

20 (1) not later than 1 year after the date of en21 actment of this Act, submit the proposal described 

22 in subsection (a) to the Committee on Homeland Se23 curity and Governmental Affairs of the Senate and 

24 the Committee on Oversight and Reform of the 

25 House of Representatives; and 


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1 (2) not later than 6 years after the date of en2 actment of this Act, implement the proposal de3 scribed in subsection (a). 

4 SEC. 5. OTHER SECURITY AGREEMENTS FOR LEASED 

5 SPACE. 

6 A lease agreement between a Federal lessee and a 

7 covered entity for the accommodation of a Federal agency 

8 in a building or other improvement that will be used for 

9 high-security space shall include language that provides 

10 that— 

11 (1) the covered entity and any member of the 

12 property management company who may be respon13 sible for oversight or maintenance of the high-secu14 rity space shall not— 

15 (A) maintain access to the high-security 

16 space; or 

17 (B) have access to the high-security space 

18 without prior approval from the Federal tenant; 

19 (2) access to the high-security space or any 

20 property or information located within that space 

21 will only be granted by the Federal tenant if the 

22 Federal tenant determines that the access is clearly 

23 consistent with the mission and responsibilities of 

24 the Federal tenant; and 


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1 (3) the Federal lessee shall have written proce2 dures in place, signed by the Federal lessee and the 

3 covered entity, governing access to the high-security 

4 space in case of emergencies that may damage the 

5 leased property. 

6 SECTION 1. SHORT TITLE; FINDINGS. 

7 (a) SHORT TITLE.—This Act may be cited as the ‘‘Se8 cure Federal Leases from Espionage and Suspicious Entan9 glements Act’’ or the ‘‘Secure Federal LEASEs Act’’. 

10 (b) FINDINGS.—Congress finds that— 

11 (1) the Government Accountability Office has re12 ported that the Federal Government often leases high13 security space from private sector landlords; 

14 (2) the General Services Administration collects 

15 highest-level and immediate ownership information 

16 through the System of Award Management, but it is 

17 not currently required to collect beneficial ownership 

18 information and lacks an adequate system for doing 

19 so; 

20 (3) the General Services Administration and 

21 Federal agencies with leasing authority may not 

22 know if foreign owners have a stake in the buildings 

23 leased by the agencies, either through foreign-incor24 porated legal entities or through ownership in United 

25 States-incorporated legal entities, even when the 


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1 leased space is used for classified operations or to 

2 store sensitive data; and 

3 (4) according to a report of the Government Ac4 countability Office, dated January 2017, that exam5 ined the risks of foreign ownership of Government6 leased real estate, ‘‘leasing space in foreign-owned 

7 buildings could present security risks such as espio8 nage and unauthorized cyber and physical access’’. 

9 SEC. 2. DEFINITIONS. 

10 In this Act: 

11 (1) BENEFICIAL OWNER.— 

12 (A) IN GENERAL.—Except as provided in 

13 subparagraph (B), the term ‘‘beneficial owner’’ 

14 means, with respect to a covered entity, each 

15 natural person who, directly or indirectly, 

16 through any contract, arrangement, under17 standing, relationship, or otherwise— 

18 (i) exercises control over the covered 

19 entity; or 

20 (ii) has a substantial interest in or re21 ceives substantial economic benefits from the 

22 assets of the covered entity. 

23 (B) EXCEPTIONS.—The term ‘‘beneficial 

24 owner’’ does not include, with respect to a cov25 ered entity— 


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1 (i) a minor child; 

2 (ii) a person acting as a nominee, 

3 intermediary, custodian, or agent on behalf 

4 of another person; 

5 (iii) a person acting solely as an em6 ployee of the covered entity and whose con7 trol over or economic benefits from the cov8 ered entity derives solely from the employ9 ment status of the person; 

10 (iv) a person whose only interest in the 

11 covered entity is through a right of inherit12 ance, unless the person also meets the re13 quirements of subparagraph (A); or 

14 (v) a creditor of the covered entity, un15 less the creditor also meets the requirements 

16 of subparagraph (A). 

17 (C) ANTI-ABUSE RULE.—The exceptions 

18 under subparagraph (B) shall not apply if used 

19 for the purpose of evading, circumventing, or 

20 abusing the requirements of this Act. 

21 (2) CONTROL.—The term ‘‘control’’ means, with 

22 respect to a covered entity— 

23 (A) having the authority or ability to deter24 mine how a covered entity is utilized; or 


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1 (B) having some decision-making power for 

2 the use of a covered entity. 

3 (3) COVERED ENTITY.—The term ‘‘covered enti4 ty’’ means— 

5 (A) a person, corporation, company, busi6 ness association, partnership, society, trust, or 

7 any other nongovernmental entity, organization, 

8 or group; or 

9 (B) any governmental entity or instrumen10 tality of a government. 

11 (4) EXECUTIVE AGENCY.—The term ‘‘Executive 

12 agency’’ has the meaning given the term in section 

13 105 of title 5, United States Code. 

14 (5) FEDERAL AGENCY.—The term ‘‘Federal agen15 cy’’ means any Executive agency or any establish16 ment in the legislative or judicial branch of the Gov17 ernment. 

18 (6) FEDERAL LESSEE.—The term ‘‘Federal les19 see’’ means the Administrator of General Services, the 

20 Architect of the Capitol, or the head of any Federal 

21 agency, other than the Department of Defense, that 

22 has independent statutory leasing authority. 

23 (7) FEDERAL TENANT.—The term ‘‘Federal ten24 ant’’ means a Federal agency that is occupying or 

25 will occupy a high-security leased space for which a 


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1 lease agreement has been secured on behalf of the Fed2 eral agency. 

3 (8) FOREIGN ENTITY.—The term ‘‘foreign entity’’ 

4 means a covered entity that is headquartered or in5 corporated in a country that is not the United States. 

6 (9) FOREIGN PERSON.—The term ‘‘foreign per7 son’’ means an individual who is not a United States 

8 person. 

9 (10) HIGH-SECURITY LEASED SPACE.—The term 

10 ‘‘high-security leased space’’ means a space leased by 

11 a Federal lessee that— 

12 (A) will be occupied by Federal employees 

13 for nonmilitary activities; and 

14 (B) has a facility security level of III, IV, 

15 or V, as determined by the Federal tenant in 

16 consultation with the Interagency Security Com17 mittee, the Department of Homeland Security, 

18 and the General Services Administration. 

19 (11) HIGHEST-LEVEL OWNER.—The term ‘‘high20 est level owner’’ means the entity that owns or con21 trols an immediate owner of the offeror of a lease, or 

22 that owns or controls 1 or more entities that control 

23 an immediate owner of the offeror. 

24 (12) IMMEDIATE OWNER.—The term ‘‘immediate 

25 owner’’ means an entity, other than the offeror of a 


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1 lease, that has direct control of the offeror, including 

2 ownership or interlocking management, identity of 

3 interests among family members, shared facilities and 

4 equipment, and the common use of employees. 

5 (13) SUBSTANTIAL ECONOMIC BENEFITS.—The 

6 term ‘‘substantial economic benefits’’ means, with re7 spect to a natural person described in paragraph 

8 (1)(A)(ii), having an entitlement to the funds or as9 sets of a covered entity that, as a practical matter, 

10 enables the person, directly or indirectly, to control, 

11 manage, or direct the covered entity. 

12 (14) UNITED STATES PERSON.—The term 

13 ‘‘United States person’’ means an individual who— 

14 (A) is a citizen of the United States; or 

15 (B) is an alien lawfully admitted for per16 manent residence in the United States. 

17 (15) WIDELY-HELD.—The term ‘‘widely-held’’ 

18 means a fund that has not less than 100 natural per19 sons as direct or indirect investors. 

20 SEC. 3. DISCLOSURE OF OWNERSHIP OF HIGH-SECURITY 

21 SPACE LEASED FOR FEDERAL AGENCIES. 

22 (a) REQUIRED DISCLOSURES.—Before entering into a 

23 lease agreement with a covered entity or approving a nova24 tion agreement with a covered entity involving a change 

25 of ownership under a lease that will be used for high-secuVerDate Sep 11 2014 22:13 Sep 10, 2019 Jkt 089200 PO 00000 Frm 00017 Fmt 6652 Sfmt 6203 E:\BILLS\S1869.RS S1869

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1 rity leased space, a Federal lessee shall require the covered 

2 entity to identify and disclose whether the immediate or 

3 highest-level owner of the leased space, including an entity 

4 involved in the financing thereof, is a foreign person or a 

5 foreign entity, including the country associated with the 

6 ownership entity. 

7 (b) NOTIFICATION.—If a disclosure is made under sub8 section (a), the Federal lessee shall notify the Federal tenant 

9 of the building or other improvement that will be used for 

10 high-security space in writing, and consult with the Federal 

11 tenant, regarding security concerns and necessary mitiga12 tion measures, if any, prior to award of the lease or ap13 proval of the novation agreement. 

14 (c) TIMING.— 

15 (1) IN GENERAL.—A Federal lessee shall require 

16 a covered entity to provide the information described 

17 in subsection (a) to a covered entity when first sub18 mitting a proposal in response to a solicitation for of19 fers issued by the Federal lessee. 

20 (2) UPDATES.—A Federal lessee shall require a 

21 covered entity to submit an update of the information 

22 described in subsection (a) annually, beginning on the 

23 date that is 1 year after the date on which the Fed24 eral tenant began occupancy, with information in25 cluding— 


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1 (A) the list of immediate or highest-level 

2 owners of the covered entity during the preceding 

3 1-year period of Federal occupancy; or 

4 (B) the information required to be provided 

5 relating to each such immediate or highest-level 

6 owner. 

7 SEC. 4. IMMEDIATE, HIGHEST-LEVEL, AND BENEFICIAL 

8 OWNERS. 

9 (a) PLAN.—The General Services Administration shall 

10 develop a Government-wide plan for identifying all imme11 diate, highest-level, or beneficial owners of high-security 

12 leased spaces before entering into a lease agreement with 

13 a covered entity for the accommodation of a Federal tenant 

14 in a high-security leased space. 

15 (b) REQUIREMENTS.— 

16 (1) CONTENTS.—The plan described in sub17 section (a) shall include a process for collecting and 

18 utilizing the following information on each imme19 diate, highest-level, or beneficial owner of a high-secu20 rity leased space: 

21 (A) Name. 

22 (B) Current residential or business street 

23 address. 


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1 (C) An identifying number or document 

2 that verifies identity as a United States person, 

3 foreign person, or foreign entity. 

4 (2) DISCLOSURES AND NOTIFICATIONS.—The 

5 plan described in subsection (a) shall— 

6 (A) require the disclosure of any immediate, 

7 highest-level, or beneficial owner that is a foreign 

8 person; 

9 (B) require that, if the Federal lessee is as10 signing the building or other improvement that 

11 will be used for high-security space to a Federal 

12 tenant, the Federal tenant shall be notified of the 

13 disclosure described in subparagraph (A); and 

14 (C) exclude collecting ownership informa15 tion on widely-held pooled investment vehicles, 

16 mutual funds, trusts, or other pooled-investment 

17 vehicles. 

18 (c) REPORT AND IMPLEMENTATION.—The General 

19 Services Administration shall— 

20 (1) not later than 1 year after the date of enact21 ment of this Act, submit the plan described in sub22 section (a) to the Committee on Homeland Security 

23 and Governmental Affairs of the Senate and the Com24 mittee on Oversight and Reform of the House of Rep25 resentatives; 


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1 (2) not later than 2 years after the date of enact2 ment of this Act, implement the plan described in 

3 subsection (a); and 

4 (3) not later than 1 year after the implementa5 tion of the plan described in subsection (a), and each 

6 year thereafter for 9 years, submit a report to the 

7 Committee on Homeland Security and Governmental 

8 Affairs of the Senate and the Committee on Oversight 

9 and Reform of the House of Representatives on the 

10 status of the implementation of the plan, including 

11 the number of disclosures made under subsection 

12 (b)(2). 

13 SEC. 5. OTHER SECURITY AGREEMENTS FOR LEASED 

14 SPACE. 

15 A lease agreement between a Federal lessee and a cov16 ered entity for the accommodation of a Federal agency in 

17 a building or other improvement that will be used for high18 security leased space shall include language that provides 

19 that— 

20 (1) the covered entity and any member of the 

21 property management company who may be respon22 sible for oversight or maintenance of the high-security 

23 leased space shall not— 

24 (A) maintain access to the high-security 

25 leased space; or 


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1 (B) have access to the high-security leased 

2 space without prior approval from the Federal 

3 tenant; 

4 (2) access to the high-security leased space or 

5 any property or information located within that 

6 space will only be granted by the Federal tenant if the 

7 Federal tenant determines that the access is clearly 

8 consistent with the mission and responsibilities of the 

9 Federal tenant; and 

10 (3) the Federal lessee shall have written proce11 dures in place, signed by the Federal lessee and the 

12 covered entity, governing access to the high-security 

13 leased space in case of emergencies that may damage 

14 the leased property. 

15 SEC. 6. APPLICABILITY. 

16 Except where otherwise provided, this Act shall apply 

17 with respect to any lease or novation agreement entered into 

18 on or after the date of the enactment of this Act. 


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Calendar No. 196 

116TH CONGRESS 

1ST SESSION S. 1869 

[Report No. 116–92] 

A BILL 

To require the disclosure of ownership of high-secuagency, and for other purposes. rity space leased to accommodate a Federal 

SEPTEMBER 10, 2019 

Reported with an amendment 


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