Notice2026-18868
North American Electric Reliability Corporation; Order Approving Reliability Standard CIP-014-4
Primary source
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Published
September 15, 2026
Issuing agencies
Energy DepartmentFederal Energy Regulatory Commission
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<title>Federal Register, Volume 91 Issue 177 (Tuesday, September 15, 2026)</title>
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[Federal Register Volume 91, Number 177 (Tuesday, September 15, 2026)]
[Notices]
[Pages 58430-58434]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-18868]
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DEPARTMENT OF ENERGY
Federal Energy Regulatory Commission
[RD26-9-000]
North American Electric Reliability Corporation; Order Approving
Reliability Standard CIP-014-4
1. On July 16, 2026, the North American Electric Reliability
Corporation (NERC), the Commission-certified Electric Reliability
Organization (ERO), submitted a petition seeking approval of proposed
Reliability Standard CIP-014-4 (Physical Security). NERC also requests
approval of the associated implementation plan, violation risk factors,
and violation severity levels, as well as the retirement of the
currently effective Reliability Standard CIP-014-3.\1\ For the reasons
discussed below, pursuant to section 215(d)(2) of the Federal Power Act
(FPA),\2\ we grant the requested approvals.
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\1\ NERC Petition at 2; Ex. B (Implementation Plan); Ex. E (VRF/
VSL Analysis).
\2\ 16 U.S.C. 824o(d)(2).
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I. Background
A. Section 215 and Mandatory Reliability Standards
2. Section 215 of the FPA provides that the Commission may certify
an ERO, the purpose of which is to establish and enforce Reliability
Standards, subject to Commission review and approval.\3\ Once approved,
the Reliability Standards may be enforced by the ERO, subject to
Commission oversight, or by the Commission independently.\4\ Pursuant
to section 215 of the FPA, the Commission established a process to
select and certify an ERO \5\ and subsequently certified NERC as the
ERO.\6\
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\3\ Id. Sec. 824o.
\4\ Id. Sec. 824o(e).
\5\ Rules Concerning Certification of the Elec. Reliability
Org.; & Procs. for the Establishment, Approval, and Enf't of Elec.
Reliability Standards, Order No. 672, 114 FERC ] 61,104, order on
reh'g, Order No. 672-A, 114 FERC ] 61,328 (2006).
\6\ N. Am. Elec. Reliability Corp., 116 FERC ] 61,062, order on
reh'g and compliance, 117 FERC ] 61,126 (2006), aff'd sub nom. Alcoa
Inc. v. FERC, 564 F.3d 1342 (D.C. Cir. 2009) (certifying NERC as the
ERO responsible for the development and enforcement of mandatory
Reliability Standards).
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B. Physical Security Reliability Standards
3. In Order No. 802, issued in November 2014, the Commission
approved the Physical Security Reliability Standard CIP-014-1.\7\ The
stated purpose of the currently effective version of the Physical
Security Reliability Standard is to ``identify and protect Transmission
stations and Transmission substations, and their associated primary
control centers, that if rendered inoperable or damaged as a result of
a physical attack could result in instability, uncontrolled separation,
or Cascading within an Interconnection.'' \8\ The Physical Security
Reliability Standard applies to
[[Page 58431]]
transmission owners that own a transmission station or substation that
meets any of the criteria identified in the Applicability section of
the standard: (1) transmission facilities operated at 500 kV or higher;
(2) transmission facilities that are operating between 200 kV and 499
kV at a single station or substation, where the station or substation
is connected at 200 kV or higher voltages to three or more other
transmission stations or substations and that exceeds an ``aggregated
weighted value'' as defined in the standard; (3) transmission
facilities at a single station or substation location that are
identified by its reliability coordinator, planning coordinator, or
transmission planner as critical to the derivation of interconnection
reliability operating limits and their associated contingencies; and
(4) transmission facilities identified as essential to meeting nuclear
plant interface requirements.\9\
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\7\ Physical Sec. Reliability Standard, Order No. 802, 149 FERC
] 61,140 (2014), reh'g denied, 151 FERC ] 61,066 (2015).
\8\ Reliability Standard CIP-014-3 (Physical Security), Section
A.3, Purpose.
\9\ See id., Section A.4, Applicability (setting forth the
Applicability criteria).
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4. The Physical Security Reliability Standard requires applicable
transmission owners to perform risk assessments on a periodic basis to
identify the applicable transmission stations, substations, and control
centers. The transmission owner must have an unaffiliated third party
verify the risk assessment. Applicable entities must then conduct an
evaluation of the potential threats and vulnerabilities of a physical
attack to each transmission station, substation and control center
identified in the risk assessment, followed by the development and
implementation of a documented physical security plan. The evaluation
and physical security plan are also subject to unaffiliated, third-
party review.\10\
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\10\ See id., Section B (Requirements and Measures) (providing
additional detail regarding the physical security requirements set
forth in the Physical Security Reliability Standard).
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C. December 2022 Order and CIP-014 Report
5. Reports of physical attacks on electric substations increased in
late 2022. In response, on December 15, 2022, the Commission directed
NERC to evaluate the effectiveness of Physical Security Reliability
Standard CIP-014-3 in mitigating risk to the Bulk-Power System from
physical attacks.\11\ The Commission directed NERC to study three
concerns. First, NERC was to assess ``the adequacy of the Applicability
criteria set forth in the Physical Security Reliability Standard CIP-
014-3.'' \12\ Second, NERC was to examine ``the required risk
assessment set forth in the Physical Security Reliability Standard,''
including possible ``parameters or criteria regarding how applicable
entities should conduct the required risk assessment.'' \13\ Third,
NERC was to consider ``whether a minimum level of physical security
protections should be required for all Bulk-Power System transmission
stations and substations and primary control centers.'' \14\ The
Commission cited several recent incidents, including the December 3,
2022 physical attacks on substations in Moore County, North Carolina
and the November 2022 incidents at several Pacific Northwest
substations.\15\
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\11\ N. Am. Elec. Reliability Corp., 181 FERC ] 61,230 (2022)
(December 2022 Order).
\12\ Id. P 1.
\13\ Id. PP 1, 8.
\14\ Id. PP 1, 7-8.
\15\ Id. P 6 nn.8-9.
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6. NERC filed its evaluation report on April 14, 2023 to address
the Commission's directive.\16\ In the CIP-014 Report, NERC found that
the CIP-014 Applicability criteria are meeting the objective ``[to
focus] limited industry resources on risks to the reliable operation of
the [Bulk-Power System] associated with physical security incidents at
the most critical facilities'' and are ``broad enough to capture the
subset of applicable facilities that [transmission owners] should
identify as `critical.' '' \17\ Therefore, NERC did not recommend
expanding those criteria.\18\
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\16\ NERC, Evaluation of the Physical Security Reliability
Standard and Physical Security Attacks to the Bulk-Power System,
Docket No. RD23-2-000 at 4 (Apr. 14, 2023), <a href="https://www.nerc.com/globalassets/who-we-are/legal--regulatory/filings--orders/nerc-filings-to-ferc/2023/nerc-report-on-cip-014-3.pd">https://www.nerc.com/globalassets/who-we-are/legal--regulatory/filings--orders/nerc-filings-to-ferc/2023/nerc-report-on-cip-014-3.pd</a> (CIP-014 Report).
\17\ Id. at 4, 12.
\18\ Id. at 4-5, 12-13, 17, 25.
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7. NERC did, however, identify concerns with the Requirement R1
risk assessment. NERC determined that ``registered entities have
inconsistent approaches to performing the risk assessment and they did
not always meet the technical rigor expected for other planning horizon
study assessment-related Reliability Standards, such as TPL-001.'' \19\
NERC further explained:
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\19\ Id. at 18.
The language within CIP-014-3 does not prescribe a specific method
on how each risk assessment of the entity's Transmission station(s) and
Transmission substation(s) shall be performed. As such, specific
components that comprise any supporting analytics are neither defined
nor listed.\20\
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\20\ Id. at 21 (citation omitted).
According to NERC, ``in certain instances, registered entities failed
to provide sufficient technical studies or justification for study
decisions resulting in noncompliance.'' \21\ NERC determined that ``the
inconsistent approach to performing the risk assessment is largely due
to a lack of specificity in the requirement language as to the nature
and parameters of the risk assessment.'' \22\
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\21\ Id. at 5; see also id. at 24.
\22\ Id. at 5; see also id. at 24.
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8. In the CIP-014 Report, NERC also addressed whether to require a
minimum level of physical security for all Bulk-Power System
transmission stations, transmission substations, and their associated
primary control centers. NERC concluded that a ``bright line set of
minimum physical security protections, while potentially preventing
some forms of attack, does not account for the [design basis threat]
process nor does it guarantee the protections will safeguard against
more sophisticated or coordinated attacks.'' \23\ NERC explained that
``[e]ffective physical security plans should align with the risks
intended to be mitigated'' and ``should include responsive or adaptive
controls, site-specific attributes, and a viable threat assessment from
expert security professionals,'' rather than a fixed, one-size-fits-all
baseline applied uniformly across all applicable facilities.\24\
Therefore, NERC recommended a holistic approach that pairs physical
security controls with complementary reliability and resiliency
measures--such as response readiness and spare-equipment strategies--to
mitigate the impact of physical attacks, rather than adopting minimum
protections applicable to all Bulk-Power System transmission stations,
substations and primary control centers.\25\
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\23\ Id. at 30.
\24\ Id.
\25\ Id. at 5, 30.
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9. Subsequently, NERC initiated a Standard Authorization Request
and commenced Project 2023-06 (Risk Assessment Refinement) to develop
clarifying revisions to CIP-014-3.\26\ On July 16, 2026, NERC filed its
petition with these revisions for approval as proposed Reliability
Standard CIP-014-4.
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\26\ NERC Petition at 9, 12; CIP-014 Report at 5, 24.
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II. NERC's Petition
10. In NERC's petition, NERC explains that proposed Reliability
Standard CIP-014-4 would revise the applicability language to reflect
the inclusion of jointly owned transmission stations and
[[Page 58432]]
transmission substations. Further, existing Applicability subsections
have been relocated, without substantive revision, to a new Attachment
1 to improve organization.\27\
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\27\ NERC Petition at 10-11; ex. A-1 at 3-4 (Applicability Sec.
4.1.1, attach. 1).
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11. NERC explains that proposed Reliability Standard CIP-014-4,
Requirement R1 would require a transmission owner to review and, if
necessary, update its list of applicable transmission stations and
transmission substations at least once every 36 calendar months,
including both existing facilities and facilities planned to be in
service within 36 calendar months. NERC explains that the 36-calendar
month risk assessment cycle would align with the annual cycle for
performing planning assessments under Reliability Standard TPL-001 to
avoid confusion from gaps between models and study horizons that
sometimes occurs under the current version of CIP-014.\28\
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\28\ NERC Petition at 11-13.
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12. NERC states that proposed Requirement R2 would require each
transmission owner with an applicable transmission station or
transmission substation identified under Requirement R1 to ``identify
proximate existing Bulk Electric System (BES) [t]ransmission station(s)
and BES [t]ransmission substation(s), irrespective of ownership, within
1500 feet or 457 meters (the shortest distance, measured substation
fence line to substation fence line).'' \29\ NERC explains that the
list of proximate facilities identified under Requirement R2 is used to
inform the risk assessment required under the proposed Requirement
R5.\30\
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\29\ Id. at 13; ex. A-1 at 4 (Requirement R2). NERC explains
that the standard drafting team selected this distance based on the
Department of Homeland Security and Department of Justice ``Bomb
Threat Stand-Off Card.'' NERC Petition at 13-14 (citing
Cybersecurity and Infrastructure Security Agency, DHS-DOJ Bomb
Threat Stand-Off Card (Aug. 2025), <a href="https://www.cisa.gov/sites/default/files/2025-08/Bomb_Threat_Stand-OffCard_082025_508.pdf">https://www.cisa.gov/sites/default/files/2025-08/Bomb_Threat_Stand-OffCard_082025_508.pdf</a>).
\30\ NERC Petition at 14; ex. C at 2, 6.
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13. NERC explains that proposed Requirement R3 would require each
transmission owner to maintain ``a documented risk assessment
methodology for evaluating the loss of each applicable [t]ransmission
station or [t]ransmission substation identified in Requirement R1.''
The proposed methodology would include three elements: (1)
``[d]ocumented criteria for assessing instability, uncontrolled
separation, or [c]ascading within an Interconnection,'' with
``technically justified thresholds identifying unacceptable generation
and load loss;'' \31\ (2) ``[a] provision that steady-state and dynamic
simulations shall each be performed using at a minimum one System peak
Load case and one System Off-Peak Load case;'' \32\ and (3) detailed
specifications for simulations at applicable and proximate stations and
substations, including assumptions regarding ``[p]rior loss of
communication and Protection Systems,'' faults, and clearing times.\33\
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\31\ NERC Petition at 15; ex. A-1 at 4 (Requirement R3, Part
3.1).
\32\ NERC Petition at 15, 17; ex. A-1 at 4 (Requirement R3, Part
3.2).
\33\ Id. at 15-19; ex. A-1 at 4-5 (Requirement R3, Part 3.3);
see also CIP-014 Report at 5, 18, 21 (inconsistent risk-assessment
approaches due to lack of specificity in CIP-014-3, Requirement R1).
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14. According to NERC, proposed Requirement R4 would require
transmission owners with jointly owned applicable transmission stations
or transmission substations to coordinate with one another to determine
and document their individual and joint responsibilities under
Requirements R3 and R5.\34\
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\34\ NERC Petition at 22-23; ex. A-1 at 5 (Requirement R4); ex.
C at 5.
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15. NERC explains that the proposed Requirement R5 would
consolidate the risk assessment periodicity--30 calendar months for
transmission owners that previously identified a critical facility, or
60 calendar months for those that did not--into a single 36-calendar-
month cycle. NERC identifies two principal benefits of this change.
First, for transmission owners that have not previously identified a
critical transmission station or transmission substation, the 36-month
cycle shortens the maximum reassessment interval from 60 months to 36
months, requiring more frequent reevaluation of facilities that may
have become critical due to changed system conditions.\35\ Second, NERC
explains that the single 36-month cycle harmonizes the CIP-014-4 risk
assessment schedule with two other recurring cycles: the Requirement R1
cycle for updating the Attachment 1 list of applicable facilities, and
the annual planning-assessment cycle under Reliability Standard TPL-
001.\36\ According to NERC, this alignment avoids confusion arising
from gaps between models and study horizons that can occur under the
current multi-tiered version of CIP-014. Proposed Requirement R5 would
further require that proximate stations and substations identified
under Requirement R2 be included in the risk assessment.
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\35\ Id. at 23-24.
\36\ Id. at 24-25.
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16. NERC states that proposed Requirements R6 through R10 would
carry forward, without substantive revision, the requirements
previously numbered R2 through R6 in Reliability Standard CIP-014-
3.\37\
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\37\ NERC Petition at 27-28.
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17. NERC requests that proposed Reliability Standard CIP-014-4
become effective on the first day of the first calendar quarter that
begins 24 calendar months after the Commission's approval order takes
effect.\38\ Reliability Standard CIP-014-3 would be retired immediately
before the effective date of Reliability Standard CIP-014-4.\39\ Under
the proposed implementation plan, the initial risk assessment required
under Requirement R5 must be completed on or before the effective date.
Subsequent risk assessments must follow no later than 36 calendar
months after that effective date.\40\
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\38\ Id. at 29.
\39\ Id.; ex. B at 2.
\40\ NERC Petition at 29; ex. B at 2.
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III. Notice of Filing
18. Notice of NERC's July 16, 2026, petition was published in the
Federal Register, 91 FR 46418 (July 23, 2026), with interventions and
protests due on or before August 17, 2026. Ameren Missouri, Ameren
Illinois Company, and Ameren Transmission Company of Illinois all filed
timely motions to intervene.
IV. Determination
A. Procedural Matters
19. Pursuant to Rule 214 of the Commission's Rules of Practice and
Procedure, 18 CFR 385.214 (2025), the timely unopposed motions to
intervene serve to make the entities that filed them parties to this
proceeding.
B. Substantive Matters
20. We determine that proposed Reliability Standard CIP-014-4
improves the reliability of the Bulk-Power System by providing a
consistent approach for identifying and assessing transmission
stations, transmission substations, and primary control centers
critical to the operation of the Bulk-Power System. Moreover, the
modifications to Reliability Standard CIP-014-4 refine and strengthen
the physical security framework for critical transmission facilities by
tightening assessment timelines, clarifying applicability thresholds,
and improving verification and oversight processes.
21. Accordingly, pursuant to section 215(d)(2) of the FPA, we
approve the proposed Reliability Standard CIP-014-4 as just,
reasonable, not unduly discriminatory or preferential, and in the
public interest. We also approve the
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associated implementation plan (including an effective date of October
1, 2028), violation risk factors and violation severity levels. We
further approve the retirement of the currently effective Reliability
Standard CIP-014-3, effective immediately before Reliability Standard
CIP-014-4 takes effect.
V. Information Collection Statement
22. The FERC-725U information collections requirements are subject
to review by the Office of Management and Budget (OMB) under section
3507(d) of the Paperwork Reduction Act of 1995. OMB's regulations
require approval of certain information collection requirements imposed
by agency rules. Upon approval of a collection of information, OMB will
assign an OMB control number and expiration date. Respondents subject
to the filing requirements will not be penalized for failing to respond
to these collections of information unless the collections of
information display a valid OMB control number. The Commission solicits
comments on the need for this information, whether the information will
have practical utility, the accuracy of the burden estimates, ways to
enhance the quality, utility, and clarity of the information to be
collected or retained, and any suggested methods for minimizing
respondents' burden, including the use of automated information
techniques.
23. The Commission bases its paperwork burden estimates on the
additional paperwork burden for transmission owners presented by
Reliability Standard CIP-014-4. Reliability Standards are objective-
based and allow entities to choose compliance approaches best tailored
to their systems. While transmission operators are applicable entities
for Reliability Standard CIP-014-4, there were no changes to their
burden based on the revisions. The number of transmission owners (TO)
that are subject to mandatory compliance with Reliability Standard CIP-
014-4, in the table below, are based on the NERC Compliance Registry as
of July 21, 2026, and good faith estimates provided by NERC to
Commission staff.
24. Based on these assumptions, we estimate the following change in
reporting burden \41\ and costs: \42\
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\41\ The Commission defines burden as the total time, effort, or
financial resources expended by persons to generate, maintain,
retain, or disclose or provide information to or for a Federal
agency. For further explanation of what is included in the
information collection burden, refer to 5 CFR 1320.3.
\42\ The estimated hourly cost (salary plus benefits) is a
combination of the following categories from the BLS website,
Occupational Employment and Wage Statistics--source for hourly
wages: 75% of the average of an Electrical Engineer (17-2071)
$92.32/hr., x .75 = $69.24 ($69.24/hour); and 25% of an Information
and Record Clerk (43-4199) $56.60/hr., $56.60 x .25 = $14.15
($14.15/hour), for a total ($69.24/hour + $14.15/hour = $83.39/
hour).
FERC-725U--(Mandatory Reliability Standards: Reliability Standard CIP-014) Change in Burden
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Number of Number of
respondents responses per Total number of Average burden hours & Total burden hours & Average cost
\43\ respondent responses cost per response total cost (rounded) per respondent
(1) (2) (1) * (2) = (3) (4).................... (3) * (4) = (5)....... (5) / (1)
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Change Annual Reporting and 344 (TO) 1 344 10 hrs.; $833.90....... 3,440 hrs.; $286,862.. $833.90
Recordkeeping.
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Total FERC-725U................. .............. .............. 344 ....................... 3,440 hrs.; $286,862.. ..............
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25. Titles: FERC-725U, Mandatory Reliability Standards for the Bulk
Power System; CIP-014 Reliability Standard.
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\43\ The number for TOs (344) represents the number of unique
U.S. entities and is taken from the NERC compliance registry
information as of July 21, 2026.
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Action: Revisions to Existing Collections of Information in FERC-
725U (CIP-014).
OMB Control Nos: 1902-0274 (FERC-725U).
Respondents: Transmission owners.
Frequency of Responses: Annually.
Necessity of the Information: This order approves modifications to
Reliability Standard CIP-014-4 that refine and strengthen the physical
security framework for critical transmission facilities by tightening
assessment timelines, clarifying applicability thresholds, and
improving verification and oversight processes. Key changes include
more objective risk-assessment requirements, clarifying language to the
Applicability section, increased rigor around third-party verification
and review, and expanded threat and vulnerability evaluation
requirements. Overall, the revisions aim to provide clearer technical
guidance, improve consistency among entities, and ensure more timely,
accountable, and risk-based protection of facilities whose loss could
cause instability, uncontrolled separation, or cascading within an
Interconnection.
Internal review: The Commission has reviewed the proposed
Reliability Standard and made a determination that its action is
necessary to implement section 215 of the FPA. The Commission has
assured itself, by means of its internal review, that there is
specific, objective support for the burden estimates associated with
the information requirements.
26. Interested persons may obtain information on the reporting
requirements by contacting the Federal Energy Regulatory Commission,
Office of the Executive Director, 888 First Street NE, Washington, DC
20426 [Attention: Kayla Williams, email: <a href="/cdn-cgi/l/email-protection#d296b3a6b391beb7b3a0b3bcb1b792b4b7a0b1fcb5bda4"><span class="__cf_email__" data-cfemail="3276534653715e575340535c515772545740511c555d44">[email protected]</span></a>, phone:
(202) 502-6468].
27. Comments concerning the information collections and
requirements approved for retirement in this order and the associated
burden estimates, should be sent to the Commission (identified by
Docket No. RD26-9-000 as appropriate), using the following methods.
Electronic filing through <a href="https://www.ferc.gov">https://www.ferc.gov</a> is preferred. Electronic
Filing should be filed in acceptable native applications and print-to-
PDF, but not in scanned or picture format. For those unable to file
electronically, comments may be filed by U.S. Postal Service mail or by
hand (including courier) delivery: Mail via U.S. Postal Service Only:
Addressed to: Federal Energy Regulatory Commission, Secretary of the
Commission, 888 First Street NE, Washington, DC 20426. Hand (including
courier) delivery: Deliver to: Federal Energy Regulatory Commission,
12225 Wilkins Avenue, Rockville, MD 20852.
[[Page 58434]]
VI. Document Availability
28. In addition to publishing the full text of this document in the
Federal Register, the Commission provides all interested persons an
opportunity to view and/or print the contents of this document via the
internet through the Commission's Home Page (<a href="http://www.ferc.gov">http://www.ferc.gov</a>).
29. From the Commission's Home Page on the internet, this
information is available on eLibrary. The full text of this document is
available on eLibrary in PDF and Microsoft Word format for viewing,
printing, and/or downloading. To access this document in eLibrary, type
the docket number excluding the last three digits of this document in
the docket number field.
30. User assistance is available for eLibrary and the Commission's
website during normal business hours from the Commission's Online
Support at (202) 502-6652 (toll free at 1-866-208-3676) or email at
<a href="/cdn-cgi/l/email-protection#1d7b786f7e7273717473786e686d6d726f695d7b786f7e337a726b"><span class="__cf_email__" data-cfemail="284e4d5a4b47464441464d5b5d5858475a5c684e4d5a4b064f475e">[email protected]</span></a>, or the Public Reference Room at (202) 502-
8371, TTY (202) 502-8659. Email the Public Reference Room at
<a href="/cdn-cgi/l/email-protection#bfcfcaddd3d6dc91cddad9dacddad1dcdacdd0d0d2ffd9dacddc91d8d0c9"><span class="__cf_email__" data-cfemail="ff8f8a9d93969cd18d9a999a8d9a919c9a8d909092bf999a8d9cd1989089">[email protected]</span></a>.
The Commission orders:
Proposed Reliability Standard CIP-014-4, its associated
implementation plan (including an effective date of October 1, 2028),
violation risk factors, and violation severity levels, and the proposed
retirement of Reliability Standard CIP-014-3 immediately prior to the
effective date of proposed Reliability Standard CIP-014-4 are hereby
approved, as discussed in the body of this order.
By the Commission.
Issued: September 10, 2026.
Debbie-Anne A. Reese,
Secretary.
[FR Doc. 2026-18868 Filed 9-14-26; 8:45 am]
BILLING CODE 6717-01-P
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