Solicitation of Comments on the Process and Technologies Used for Disseminating the Weekly Petroelum Status Report and the Weekly Natural Gas Storage Report, 61101-61103 [E8-24487]
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Federal Register / Vol. 73, No. 200 / Wednesday, October 15, 2008 / Notices
meeting; reasonable provision will be
made to include requested topic(s) on
the agenda. The Chair of the Board is
empowered to conduct the meeting in a
fashion that will facilitate the orderly
conduct of business.
Minutes: The minutes of the meeting
will be available for public review and
copying within 60 days on the STEAB
Web site, https://www.steab.org.
Issued at Washington, DC, on October 8,
2008.
Rachel Samuel,
Deputy Committee Management Officer.
[FR Doc. E8–24396 Filed 10–14–08; 8:45 am]
BILLING CODE 6450–01–P
I. Background
II. Issues with Dissemination of Weekly
Reports
III. Request for Comments
DEPARTMENT OF ENERGY
Energy Information Administration
Solicitation of Comments on the
Process and Technologies Used for
Disseminating the Weekly Petroelum
Status Report and the Weekly Natural
Gas Storage Report
Energy Information
Administration (EIA), Department of
Energy (DOE).
ACTION: Solicitation of comments on the
process and technologies used for
disseminating the Weekly Petroleum
Status Report and the Weekly Natural
Gas Storage Report.
jlentini on PROD1PC65 with NOTICES
AGENCY:
SUMMARY: The EIA is requesting
comments on the process and
technologies used for disseminating
weekly information regarding petroleum
and natural gas stocks in the Weekly
Petroleum Status Report (WPSR) and
the Weekly Natural Gas Storage Report
(WNGSR). EIA has attempted to develop
its current dissemination processes and
information technologies to meet its
goal of providing fair access to any
interested user, but has recently faced
significant challenges in this area that
may require changes in the process and/
or technologies used for disseminating
weekly data. This request is based on
EIA’s mandate for carrying out a central,
comprehensive and unified energy data
and information program responsive to
users’ needs for credible, reliable and
timely energy information that will
improve and broaden understanding of
petroleum and natural gas supply in the
United States.
DATES: Comments must be filed by
November 14, 2008. If you anticipate
difficulty in submitting comments
within that period, contact the person
listed below as soon as possible.
ADDRESSES: Comments should be
directed to Karen Robinson, Office of
Oil and Gas. To ensure receipt of the
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18:32 Oct 14, 2008
Jkt 217001
comments by the due date, submission
by FAX (202–586–9739) or e-mail
(karen.robinson@eia.doe.gov) is
recommended. The mailing address is
Office of Oil and Gas, Energy
Information Administration, EI–40,
Forrestal Building, U.S. Department of
Energy, 1000 Independence Ave., SW.,
Washington, DC 20585. Alternatively,
Karen Robinson may be contacted by
telephone at (202) 586–2585.
FOR FURTHER INFORMATION CONTACT:
Requests for additional information
should be directed to Karen Robinson as
listed above.
SUPPLEMENTARY INFORMATION:
I. Background
Every week, the EIA’s Office of Oil
and Gas releases two reports, one on the
previous week’s U.S. petroleum supply
and disposition and one on natural gas
storage inventories. Together, these
reports provide the industry, press,
planners, policymakers, consumers,
analysts, and State and local
governments with a ready, reliable
source of current information about
petroleum and natural gas.
The WPSR has provided timely
information on supply and disposition
of crude oil and principal petroleum
products since April 1979. The WPSR
was initiated to increase available
information during a period of gasoline
shortages arising from the repercussions
of the revolution in Iran. The WPSR
describes the supply and disposition of
crude oil and petroleum products in the
United States in major U.S. regions
called Petroleum Administration for
Defense Districts. The weekly data are
used as preliminary estimates for the
Petroleum Supply Monthly (PSM) and
the Monthly Energy Review (MER).
While more accurate and detailed data
are presented in the PSM based on
monthly surveys, those surveys do not
capture sudden or rapid changes in
petroleum market conditions nor do
they provide data that are timely enough
to be useful in a shortfall situation.
The WNGSR has provided weekly
estimates of working natural gas
volumes held in underground storage
facilities at the national and regional
levels since May 2002. Weekly estimates
of working natural gas in storage were
first provided by the American Gas
Association (AGA) starting in 1994. EIA
picked up the report when the AGA
announced that it would discontinue its
survey. The WNGSR relies on weekly
survey data from a sample of operators
of underground storage facilities. These
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61101
data are used to prepare regional and
national estimates for all underground
storage. In September 2007 the WNGSR
was designated by the Office of
Management and Budget as DOE’s first
Principal Federal Economic Indicator.
Over time, interest in both the WPSR
and the WNGSR has increased. Weekly
WPSR and WNGSR results are routinely
predicted by analysts, and deviations
from analysts’ expectations are often
cited as moving futures markets in
petroleum and natural gas.
As one part of its response to a
problem that arose in the release of
WPSR data on May 29, 2008, press
releases issued on May 29, 2008 and
June 2, 2008, announced EIA’s intention
to open a dialogue to discuss the
technical and process challenges facing
EIA in this area with users interested in
accessing weekly data, including the
press, trading organizations and other
parties. This Federal Register notice
initiates that dialogue. Following the
exchange of information with
stakeholders, EIA will develop a
specific proposal for a comprehensive
release process that is both fair and
takes account of changing technologies
and post that proposal in the Federal
Register for comment. After considering
comments, EIA will decide on and
publicly announce its revised
comprehensive release process before
any changes are implemented.
II. Issues With Dissemination of Weekly
Reports
EIA’s interest is in providing fair
access to any interested user, regardless
of the nature of their interest, whether
that interest is commercial, journalistic,
academic, policy or general interest.
EIA’s dissemination process and
information technologies attempt to
meet that goal.
EIA’s current practice is to load the
WPSR and WNGSR on its Web site prior
to the scheduled release time, behind a
software ‘‘gate’’ that prevents access to
the reports before the release time. At
the release time, the gate is removed,
and interested parties have access to the
information.
Because oil and natural gas market
participants respond extremely quickly
to the information, the commercial
value of the information is high but
decays extremely quickly. The use of
automated retrieval programs known as
‘‘robots’’ to access online data in
combination with the ability to program
trading based on data received by robots
through electronic interfaces in oil and
natural gas commodities markets (both
futures and over-the-counter swaps)
creates a situation where small time
E:\FR\FM\15OCN1.SGM
15OCN1
jlentini on PROD1PC65 with NOTICES
61102
Federal Register / Vol. 73, No. 200 / Wednesday, October 15, 2008 / Notices
differences in access to this information
can have commercial implications.
Consistent with the intense
immediate interest and the quick decay
in the commercial value of the
information, demand on EIA servers
increases significantly over just a few
seconds around release times. For
example, during the first half of 2008,
attempts to access the Web site for the
WPSR at about the time of release rose
from fewer than 100 hits per second to
a typical peak between 1,000 and 5,000
hits per second. One hour before or after
the release, hits per second are at much
lower levels. The immediate reason for
the surge in hits on the EIA web site is
the more active use of robots. In EIA’s
experience, although most robots have
not performed at excessive levels, some
robots have been designed to submit
requests so rapidly that their load has
reduced overall server performance and
impaired access to others.
EIA has attempted to manage this
weekly demand for WPSR data and, to
a lesser degree, the WNGSR, through the
application of a new process and
technologies designed to meet the goal
of providing fair access to any interested
user. However, in a Web environment,
strategies used by EIA’s customers
evolve constantly, requiring continuous
refinement of EIA’s process and
information technologies to meet its
goal of providing all EIA customers with
fair access to our data. Two recent
experiences illustrate the challenges
faced by EIA in this area.
On May 29, 2008, petroleum data
published in the WPSR for the week
ending May 23, 2008, was briefly made
available on the public EIA Web site
prior to its scheduled release time of
10:30 a.m. (Eastern Time) due to a
combination of procedural and
information technology errors involving
the process and technologies deployed
in response to the rise in robot activity.
EIA reviewed what happened on May
29, 2008, and took significant actions to
stabilize its systems and strengthen its
processes. In a press release on the day
of the incident, EIA provided
information on initial indications of the
problem and stated that interim changes
necessary to avoid a recurrence would
be made available no later than June 2,
2008, two days ahead of the next
scheduled weekly data release. The May
29, 2008, press release and another one
issued on June 2, 2008, announced
EIA’s intention to open a dialogue with
customers on the process and
technologies for dissemination of the
weekly data. The June 2, 2008, press
release also outlined the following
interim changes:
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18:32 Oct 14, 2008
Jkt 217001
1. Temporary process changes,
including a delay in WNGSR and WPSR
data releases until 10:35 a.m., to assure
the inaccessibility of data;
2. Release of WNGSR and WPSR 30
minutes apart when releases are
scheduled to occur on the same day
during weeks with a Federal holiday on
a Monday;
3. Immediate implementation of a
policy to block robots that are accessing
the Web site in any way that EIA
considers excessive or malicious or that
do not contain contact or identifying
information; and,
4. A reminder that EIA may report
robot activity in accordance with its
Security Policy, which could result in
criminal prosecution under the
Computer Fraud and Abuse Act of 1986
and the National Information
Infrastructure Protection Act of 1996
(Pub. L. 104–294), (18 U.S.C. 1030), or
other applicable criminal laws.
Internally, EIA thoroughly tested its
software, both in regular operations and
under stressed conditions, and
eliminated all identified problems. EIA
also has revised its process, increasing
the communication across EIA staff
before and during release to identify
potential issues, proactively develop
actions to minimize risk and assure that
all employees act in accordance with
written procedures.
EIA’s actions have materially reduced
the likelihood of a repeated early release
of the WPSR, but stress on the process
and systems remains due to the
increasing level of interest in the WPSR
and WNGSR at release time. EIA’s
interim actions were primarily designed
to stabilize and improve its process and
system. In addition, the actions did
remind those accessing WPSR and
WNGSR data that EIA policy permitted
more active EIA responses to manage
certain types of behaviors.
The most aggressive activity did
subside for some time after the May 29,
2008, incident and the issuance of the
May 29, 2008, and June 2, 2008, press
releases. More recently, however, the
most aggressive visitors have increased
their activity significantly. For example,
on September 10, 2008, some parties
attempting to reach the WPSR faced
delays in access until after the release
time directly because of the aggressive
behavior of others. On that day, robots
launched from several IP addresses
impeded access to EIA’s servers for
several seconds by repeatedly
downloading the same WPSR data—
hundreds or thousands of times—
without relinquishing their connections.
This activity impaired other users’
access to the data.
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EIA is continuing to explore
technological alternatives to permit it to
achieve its goal of providing fair access
to WPSR and WNGSR data as close to
simultaneously as possible to any
interested user, regardless of the nature
of their interest, whether it is
commercial, journalistic, academic,
policy or general interest. Since
September 10, 2008, EIA has more
actively blocked robots from IP
addresses with prior patterns of
excessive attempts to download
information. EIA is developing the
ability to block real-time activity beyond
predetermined thresholds. And, as
indicated above, EIA has asserted its
intent to report robot activity in
accordance with its Security Policy,
which could result in criminal
prosecution under the Computer Fraud
and Abuse Act of 1986 and the National
Information Infrastructure Protection
Act of 1996 (Pub. L. 104–294), (18
U.S.C. 1030), or other applicable
criminal laws.
The technical requirements to manage
increasingly aggressive behavior by
apparently increasing numbers of
interested parties in a highly
technological environment are
extraordinary. The complexity is
increased at the same time by EIA’s and
DOE’s needs to manage cyber security in
a Governmental context of tight budgets
and very fast change. In some ways, the
problem may be without precedent—the
functional equivalent, whether intended
or not, of a prescheduled denial-ofservice attack twice a week. Incremental
technology and process solutions may
not be enough to assure that fair access
to WPSR and WNGSR data is available
to all interested users.
III. Request for Comments
EIA is asking for public comment on
the issues discussed in item II. In
particular, EIA is seeking public
comments on the following questions:
A. EIA’s interest is in providing fair
access to any interested user, regardless
of the nature of their interest, whether
that interest is commercial, journalistic,
academic, policy or general interest. EIA
has attempted to develop its
dissemination process and information
technologies to meet that goal.
1. EIA releases information it collects
in the normal course of its business.
Release of that information is for the
public good, rather than for any
particular commercial reason. The
commercial value of the information to
users underscores its importance, but is
entirely outside of EIA’s mandate. Other
than protecting its own information
technology infrastructure, should EIA be
concerned over the accessibility of the
E:\FR\FM\15OCN1.SGM
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jlentini on PROD1PC65 with NOTICES
Federal Register / Vol. 73, No. 200 / Wednesday, October 15, 2008 / Notices
information it disseminates on its Web
site if some users experience delays in
accessing the weekly data?
2. Disseminating information
simultaneously over the web is not
physically possible. Servers process
information sequentially and
communication connections to servers
have physical limitations that mean, in
absolute terms, the information does not
move ‘‘simultaneously.’’ However, very
small time differences may not be
material. In the case of release of the
WPSR and WNGSR, do minor delays
involving one to fifty seconds in
accessing information undermine EIA’s
policy to promote fair access in
operational terms?
3. The value of WPSR and WNGSR
information varies for different
customers. With the development of
electronic trading in oil and natural gas
commodities—both futures and swaps—
the ability to use software ‘‘robots’’ to
access online data and the ability to
automate trading based on data received
by robots through electronic interfaces,
a time difference in access to this
information on the order of even a
second or two could have implications
for commercial users. Journalists and
possibly certain consultants will want to
communicate this information to
commercial users as well, and very
short-period access differences matter
for these data users as well. Those with
academic, policy or general interests
may not need this information within
seconds of its release. Should EIA
consider possible technological
solutions to provide access to this
information on different time frames?
Would treating different types of
customers differently be a problem? If
so, why and how?
4. A registration system could permit
registered customers to have the most
immediate access to data in exchange
for contact information and an
agreement to access information using
procedures and methods that do not put
other customers at risk for delayed
access. Should EIA require registration
for customers needing immediate access
to this data and what guidelines would
be reasonable for users to follow?
B. EIA’s current practice is to load the
WPSR and WNGSR on its Web site prior
to the scheduled release time, behind a
software ‘‘gate’’ that prevents access to
the reports before the release time. At
the release time, the gate is removed,
and interested parties have access to the
information. Currently, the releases
occur at times when trading of energy
futures on the New York Mercantile
Exchange is open.
1. Is a web release of information the
best way to disseminate that
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18:32 Oct 14, 2008
Jkt 217001
information? Are there alternatives that
would be more effective? For example,
are there reliable ‘‘push’’ technologies
that could come closer to simultaneous
access—ways for EIA to send the
information to interested parties rather
than simply posting it?
2. Are there particular technologies
that EIA should be considering to (a)
manage the brief, extraordinarily high
loads associated with the WPSR and
WNGSR releases, (b) block aggressive
behaviors reducing service quality to
others (inadvertently or intentionally),
and (c) protect data after it is loaded
onto the servers and before its release?
Technologies could include software
solutions, hardware and hardware
configurations, etc.
3. Should EIA consider moving the
release times for the WPSR and
WNGSR? Most other economic and
commodity data is released either before
or after major U.S. stock and commodity
exchanges are open. With the advent of
electronic trading, NYMEX regularly
trades petroleum and natural gas futures
from 6 p.m. to the next day at 5:15 p.m.
every day except Saturday afternoon
into Sunday. This schedule typically
leaves only a 45-minute window when
trades do not take place during the work
week. Online trading in over-thecounter swaps effectively takes place
continuously. Are there times for release
of the WPSR and WNGSR that better
align with trading activity?
C. EIA has more actively blocked
robots from IP addresses with prior
patterns of extremely aggressive
behavior. EIA is developing the ability
to block activity by robots beyond predetermined thresholds.
1. Should EIA consider banning use of
robots to access this data?
2. Should EIA continue to block
robots based on their level of activity?
If so, what criteria should EIA use to
block them? Historical behavior? Realtime behavior?
3. Could EIA develop and distribute a
standard robot designed to regulate
traffic by managing how hard it hit the
EIA Web site, allowing for blocking of
non-standard designs and possibly
identifying users to allow for more
effective follow-up?
D. EIA has asserted its intent to report
robot activity in accordance with its
Security Policy, which could result in
criminal prosecution under the
Computer Fraud and Abuse Act of 1986
and the National Information
Infrastructure Protection Act of 1996
(Pub. L. 104–294), (18 U.S.C. 1030), or
other applicable criminal laws. At what
point does tying-up access to EIA’s
servers for several seconds by
repeatedly downloading the same
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61103
without relinquishing connections
data—hundreds or thousands of times—
become effectively a cyber security
attack? What standards should EIA
apply to make that determination?
Comments submitted in response to
this notice will be considered by EIA in
the development of future
dissemination policies, processes and
systems. The comments will also
become a matter of public record.
After consideration of the comments,
EIA will issue a description of revised
policies, processes and technologies
used for disseminating the WPSR and
the WNGSR. The description will be
announced in a Federal Register notice
issued by EIA.
Statutory Authority: 15 U.S.C. 764(b) and
790(a).
Issued in Washington, DC, October 8, 2008.
Howard Gruenspecht,
Acting Administrator, Energy Information
Administration.
[FR Doc. E8–24487 Filed 10–14–08; 8:45 am]
BILLING CODE 6450–01–P
DEPARTMENT OF ENERGY
Federal Energy Regulatory
Commission
[Docket No. IC09–65A–000; FERC–65A]
Commission Information Collection
Activities, Proposed Collection;
Comment Request; Extension
October 8, 2008.
Federal Energy Regulatory
Commission.
ACTION: Notice.
AGENCY:
SUMMARY: In compliance with the
requirements of section 3506(c)(2)(a) of
the Paperwork Reduction Act of 1995
(Pub. L. No. 104–13), the Federal Energy
Regulatory Commission (Commission) is
soliciting public comment on the
specific aspects of the information
collection described below.
DATES: Comments on the collection of
information are due November 14, 2008.
ADDRESSES: Copies of sample filings of
the proposed information collection can
be obtained from the Commission’s Web
site (https://www.ferc.gov/docs-filings/
elibrary.asp) or from the Federal Energy
Regulatory Commission, Attn: Michael
Miller, Office of the Executive Director,
ED–34, 888 First Street, NE.,
Washington, DC 20426. Comments may
be filed either in paper format or
electronically. Those parties filing
electronically do not need to make a
paper filing. For paper filing, the
original and 14 copies of such
comments should be submitted to the
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]]>Agencies
[Federal Register Volume 73, Number 200 (Wednesday, October 15, 2008)]
[Notices]
[Pages 61101-61103]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E8-24487]
-----------------------------------------------------------------------
DEPARTMENT OF ENERGY
Energy Information Administration
Solicitation of Comments on the Process and Technologies Used for
Disseminating the Weekly Petroelum Status Report and the Weekly Natural
Gas Storage Report
AGENCY: Energy Information Administration (EIA), Department of Energy
(DOE).
ACTION: Solicitation of comments on the process and technologies used
for disseminating the Weekly Petroleum Status Report and the Weekly
Natural Gas Storage Report.
-----------------------------------------------------------------------
SUMMARY: The EIA is requesting comments on the process and technologies
used for disseminating weekly information regarding petroleum and
natural gas stocks in the Weekly Petroleum Status Report (WPSR) and the
Weekly Natural Gas Storage Report (WNGSR). EIA has attempted to develop
its current dissemination processes and information technologies to
meet its goal of providing fair access to any interested user, but has
recently faced significant challenges in this area that may require
changes in the process and/or technologies used for disseminating
weekly data. This request is based on EIA's mandate for carrying out a
central, comprehensive and unified energy data and information program
responsive to users' needs for credible, reliable and timely energy
information that will improve and broaden understanding of petroleum
and natural gas supply in the United States.
DATES: Comments must be filed by November 14, 2008. If you anticipate
difficulty in submitting comments within that period, contact the
person listed below as soon as possible.
ADDRESSES: Comments should be directed to Karen Robinson, Office of Oil
and Gas. To ensure receipt of the comments by the due date, submission
by FAX (202-586-9739) or e-mail (karen.robinson@eia.doe.gov) is
recommended. The mailing address is Office of Oil and Gas, Energy
Information Administration, EI-40, Forrestal Building, U.S. Department
of Energy, 1000 Independence Ave., SW., Washington, DC 20585.
Alternatively, Karen Robinson may be contacted by telephone at (202)
586-2585.
FOR FURTHER INFORMATION CONTACT: Requests for additional information
should be directed to Karen Robinson as listed above.
SUPPLEMENTARY INFORMATION:
I. Background
II. Issues with Dissemination of Weekly Reports
III. Request for Comments
I. Background
Every week, the EIA's Office of Oil and Gas releases two reports,
one on the previous week's U.S. petroleum supply and disposition and
one on natural gas storage inventories. Together, these reports provide
the industry, press, planners, policymakers, consumers, analysts, and
State and local governments with a ready, reliable source of current
information about petroleum and natural gas.
The WPSR has provided timely information on supply and disposition
of crude oil and principal petroleum products since April 1979. The
WPSR was initiated to increase available information during a period of
gasoline shortages arising from the repercussions of the revolution in
Iran. The WPSR describes the supply and disposition of crude oil and
petroleum products in the United States in major U.S. regions called
Petroleum Administration for Defense Districts. The weekly data are
used as preliminary estimates for the Petroleum Supply Monthly (PSM)
and the Monthly Energy Review (MER). While more accurate and detailed
data are presented in the PSM based on monthly surveys, those surveys
do not capture sudden or rapid changes in petroleum market conditions
nor do they provide data that are timely enough to be useful in a
shortfall situation.
The WNGSR has provided weekly estimates of working natural gas
volumes held in underground storage facilities at the national and
regional levels since May 2002. Weekly estimates of working natural gas
in storage were first provided by the American Gas Association (AGA)
starting in 1994. EIA picked up the report when the AGA announced that
it would discontinue its survey. The WNGSR relies on weekly survey data
from a sample of operators of underground storage facilities. These
data are used to prepare regional and national estimates for all
underground storage. In September 2007 the WNGSR was designated by the
Office of Management and Budget as DOE's first Principal Federal
Economic Indicator.
Over time, interest in both the WPSR and the WNGSR has increased.
Weekly WPSR and WNGSR results are routinely predicted by analysts, and
deviations from analysts' expectations are often cited as moving
futures markets in petroleum and natural gas.
As one part of its response to a problem that arose in the release
of WPSR data on May 29, 2008, press releases issued on May 29, 2008 and
June 2, 2008, announced EIA's intention to open a dialogue to discuss
the technical and process challenges facing EIA in this area with users
interested in accessing weekly data, including the press, trading
organizations and other parties. This Federal Register notice initiates
that dialogue. Following the exchange of information with stakeholders,
EIA will develop a specific proposal for a comprehensive release
process that is both fair and takes account of changing technologies
and post that proposal in the Federal Register for comment. After
considering comments, EIA will decide on and publicly announce its
revised comprehensive release process before any changes are
implemented.
II. Issues With Dissemination of Weekly Reports
EIA's interest is in providing fair access to any interested user,
regardless of the nature of their interest, whether that interest is
commercial, journalistic, academic, policy or general interest. EIA's
dissemination process and information technologies attempt to meet that
goal.
EIA's current practice is to load the WPSR and WNGSR on its Web
site prior to the scheduled release time, behind a software ``gate''
that prevents access to the reports before the release time. At the
release time, the gate is removed, and interested parties have access
to the information.
Because oil and natural gas market participants respond extremely
quickly to the information, the commercial value of the information is
high but decays extremely quickly. The use of automated retrieval
programs known as ``robots'' to access online data in combination with
the ability to program trading based on data received by robots through
electronic interfaces in oil and natural gas commodities markets (both
futures and over-the-counter swaps) creates a situation where small
time
[[Page 61102]]
differences in access to this information can have commercial
implications.
Consistent with the intense immediate interest and the quick decay
in the commercial value of the information, demand on EIA servers
increases significantly over just a few seconds around release times.
For example, during the first half of 2008, attempts to access the Web
site for the WPSR at about the time of release rose from fewer than 100
hits per second to a typical peak between 1,000 and 5,000 hits per
second. One hour before or after the release, hits per second are at
much lower levels. The immediate reason for the surge in hits on the
EIA web site is the more active use of robots. In EIA's experience,
although most robots have not performed at excessive levels, some
robots have been designed to submit requests so rapidly that their load
has reduced overall server performance and impaired access to others.
EIA has attempted to manage this weekly demand for WPSR data and,
to a lesser degree, the WNGSR, through the application of a new process
and technologies designed to meet the goal of providing fair access to
any interested user. However, in a Web environment, strategies used by
EIA's customers evolve constantly, requiring continuous refinement of
EIA's process and information technologies to meet its goal of
providing all EIA customers with fair access to our data. Two recent
experiences illustrate the challenges faced by EIA in this area.
On May 29, 2008, petroleum data published in the WPSR for the week
ending May 23, 2008, was briefly made available on the public EIA Web
site prior to its scheduled release time of 10:30 a.m. (Eastern Time)
due to a combination of procedural and information technology errors
involving the process and technologies deployed in response to the rise
in robot activity. EIA reviewed what happened on May 29, 2008, and took
significant actions to stabilize its systems and strengthen its
processes. In a press release on the day of the incident, EIA provided
information on initial indications of the problem and stated that
interim changes necessary to avoid a recurrence would be made available
no later than June 2, 2008, two days ahead of the next scheduled weekly
data release. The May 29, 2008, press release and another one issued on
June 2, 2008, announced EIA's intention to open a dialogue with
customers on the process and technologies for dissemination of the
weekly data. The June 2, 2008, press release also outlined the
following interim changes:
1. Temporary process changes, including a delay in WNGSR and WPSR
data releases until 10:35 a.m., to assure the inaccessibility of data;
2. Release of WNGSR and WPSR 30 minutes apart when releases are
scheduled to occur on the same day during weeks with a Federal holiday
on a Monday;
3. Immediate implementation of a policy to block robots that are
accessing the Web site in any way that EIA considers excessive or
malicious or that do not contain contact or identifying information;
and,
4. A reminder that EIA may report robot activity in accordance with
its Security Policy, which could result in criminal prosecution under
the Computer Fraud and Abuse Act of 1986 and the National Information
Infrastructure Protection Act of 1996 (Pub. L. 104-294), (18 U.S.C.
1030), or other applicable criminal laws.
Internally, EIA thoroughly tested its software, both in regular
operations and under stressed conditions, and eliminated all identified
problems. EIA also has revised its process, increasing the
communication across EIA staff before and during release to identify
potential issues, proactively develop actions to minimize risk and
assure that all employees act in accordance with written procedures.
EIA's actions have materially reduced the likelihood of a repeated
early release of the WPSR, but stress on the process and systems
remains due to the increasing level of interest in the WPSR and WNGSR
at release time. EIA's interim actions were primarily designed to
stabilize and improve its process and system. In addition, the actions
did remind those accessing WPSR and WNGSR data that EIA policy
permitted more active EIA responses to manage certain types of
behaviors.
The most aggressive activity did subside for some time after the
May 29, 2008, incident and the issuance of the May 29, 2008, and June
2, 2008, press releases. More recently, however, the most aggressive
visitors have increased their activity significantly. For example, on
September 10, 2008, some parties attempting to reach the WPSR faced
delays in access until after the release time directly because of the
aggressive behavior of others. On that day, robots launched from
several IP addresses impeded access to EIA's servers for several
seconds by repeatedly downloading the same WPSR data--hundreds or
thousands of times--without relinquishing their connections. This
activity impaired other users' access to the data.
EIA is continuing to explore technological alternatives to permit
it to achieve its goal of providing fair access to WPSR and WNGSR data
as close to simultaneously as possible to any interested user,
regardless of the nature of their interest, whether it is commercial,
journalistic, academic, policy or general interest. Since September 10,
2008, EIA has more actively blocked robots from IP addresses with prior
patterns of excessive attempts to download information. EIA is
developing the ability to block real-time activity beyond predetermined
thresholds. And, as indicated above, EIA has asserted its intent to
report robot activity in accordance with its Security Policy, which
could result in criminal prosecution under the Computer Fraud and Abuse
Act of 1986 and the National Information Infrastructure Protection Act
of 1996 (Pub. L. 104-294), (18 U.S.C. 1030), or other applicable
criminal laws.
The technical requirements to manage increasingly aggressive
behavior by apparently increasing numbers of interested parties in a
highly technological environment are extraordinary. The complexity is
increased at the same time by EIA's and DOE's needs to manage cyber
security in a Governmental context of tight budgets and very fast
change. In some ways, the problem may be without precedent--the
functional equivalent, whether intended or not, of a prescheduled
denial-of-service attack twice a week. Incremental technology and
process solutions may not be enough to assure that fair access to WPSR
and WNGSR data is available to all interested users.
III. Request for Comments
EIA is asking for public comment on the issues discussed in item
II. In particular, EIA is seeking public comments on the following
questions:
A. EIA's interest is in providing fair access to any interested
user, regardless of the nature of their interest, whether that interest
is commercial, journalistic, academic, policy or general interest. EIA
has attempted to develop its dissemination process and information
technologies to meet that goal.
1. EIA releases information it collects in the normal course of its
business. Release of that information is for the public good, rather
than for any particular commercial reason. The commercial value of the
information to users underscores its importance, but is entirely
outside of EIA's mandate. Other than protecting its own information
technology infrastructure, should EIA be concerned over the
accessibility of the
[[Page 61103]]
information it disseminates on its Web site if some users experience
delays in accessing the weekly data?
2. Disseminating information simultaneously over the web is not
physically possible. Servers process information sequentially and
communication connections to servers have physical limitations that
mean, in absolute terms, the information does not move
``simultaneously.'' However, very small time differences may not be
material. In the case of release of the WPSR and WNGSR, do minor delays
involving one to fifty seconds in accessing information undermine EIA's
policy to promote fair access in operational terms?
3. The value of WPSR and WNGSR information varies for different
customers. With the development of electronic trading in oil and
natural gas commodities--both futures and swaps--the ability to use
software ``robots'' to access online data and the ability to automate
trading based on data received by robots through electronic interfaces,
a time difference in access to this information on the order of even a
second or two could have implications for commercial users. Journalists
and possibly certain consultants will want to communicate this
information to commercial users as well, and very short-period access
differences matter for these data users as well. Those with academic,
policy or general interests may not need this information within
seconds of its release. Should EIA consider possible technological
solutions to provide access to this information on different time
frames? Would treating different types of customers differently be a
problem? If so, why and how?
4. A registration system could permit registered customers to have
the most immediate access to data in exchange for contact information
and an agreement to access information using procedures and methods
that do not put other customers at risk for delayed access. Should EIA
require registration for customers needing immediate access to this
data and what guidelines would be reasonable for users to follow?
B. EIA's current practice is to load the WPSR and WNGSR on its Web
site prior to the scheduled release time, behind a software ``gate''
that prevents access to the reports before the release time. At the
release time, the gate is removed, and interested parties have access
to the information. Currently, the releases occur at times when trading
of energy futures on the New York Mercantile Exchange is open.
1. Is a web release of information the best way to disseminate that
information? Are there alternatives that would be more effective? For
example, are there reliable ``push'' technologies that could come
closer to simultaneous access--ways for EIA to send the information to
interested parties rather than simply posting it?
2. Are there particular technologies that EIA should be considering
to (a) manage the brief, extraordinarily high loads associated with the
WPSR and WNGSR releases, (b) block aggressive behaviors reducing
service quality to others (inadvertently or intentionally), and (c)
protect data after it is loaded onto the servers and before its
release? Technologies could include software solutions, hardware and
hardware configurations, etc.
3. Should EIA consider moving the release times for the WPSR and
WNGSR? Most other economic and commodity data is released either before
or after major U.S. stock and commodity exchanges are open. With the
advent of electronic trading, NYMEX regularly trades petroleum and
natural gas futures from 6 p.m. to the next day at 5:15 p.m. every day
except Saturday afternoon into Sunday. This schedule typically leaves
only a 45-minute window when trades do not take place during the work
week. Online trading in over-the-counter swaps effectively takes place
continuously. Are there times for release of the WPSR and WNGSR that
better align with trading activity?
C. EIA has more actively blocked robots from IP addresses with
prior patterns of extremely aggressive behavior. EIA is developing the
ability to block activity by robots beyond pre-determined thresholds.
1. Should EIA consider banning use of robots to access this data?
2. Should EIA continue to block robots based on their level of
activity? If so, what criteria should EIA use to block them? Historical
behavior? Real-time behavior?
3. Could EIA develop and distribute a standard robot designed to
regulate traffic by managing how hard it hit the EIA Web site, allowing
for blocking of non-standard designs and possibly identifying users to
allow for more effective follow-up?
D. EIA has asserted its intent to report robot activity in
accordance with its Security Policy, which could result in criminal
prosecution under the Computer Fraud and Abuse Act of 1986 and the
National Information Infrastructure Protection Act of 1996 (Pub. L.
104-294), (18 U.S.C. 1030), or other applicable criminal laws. At what
point does tying-up access to EIA's servers for several seconds by
repeatedly downloading the same without relinquishing connections
data--hundreds or thousands of times--become effectively a cyber
security attack? What standards should EIA apply to make that
determination?
Comments submitted in response to this notice will be considered by
EIA in the development of future dissemination policies, processes and
systems. The comments will also become a matter of public record.
After consideration of the comments, EIA will issue a description
of revised policies, processes and technologies used for disseminating
the WPSR and the WNGSR. The description will be announced in a Federal
Register notice issued by EIA.
Statutory Authority: 15 U.S.C. 764(b) and 790(a).
Issued in Washington, DC, October 8, 2008.
Howard Gruenspecht,
Acting Administrator, Energy Information Administration.
[FR Doc. E8-24487 Filed 10-14-08; 8:45 am]
BILLING CODE 6450-01-P
