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UC San Diego Electronic Theses and Dissertations UC San Diego UC San Diego Electronic Theses and Dissertations Title Networks, deregulation, and risk : the politics of critical infrastructure protection Permalink https://escholarship.org/uc/item/5b93r8tr Author Ellis, Ryan Nelson Publication Date 2011 Peer reviewed|Thesis/dissertation eScholarship.org Powered by the California Digital Library University of California UNIVERSITY OF CALIFORNIA, SAN DIEGO Networks, Deregulation, and Risk: The Politics of Critical Infrastructure Protection A dissertation submitted in partial satisfaction of the requirements for the degree Doctor of Philosophy in Communication by Ryan Nelson Ellis Committee in charge: Professor Robert Horwitz, Chair Professor Lewis Branscomb Professor Gary Fields Professor Akos Rona-Tas Professor Michael Schudson 2011 © Ryan Nelson Ellis, 2011 All rights reserved. The dissertation of Ryan Nelson Ellis is approved, and it is acceptable in quality and form for publication on microfilm and electronically: ________________________________________________________________________ ________________________________________________________________________ ________________________________________________________________________ ________________________________________________________________________ ________________________________________________________________________ Chair University of California, San Diego 2011 iii DEDICATION For my father, mother, and brother. For Erin Dunne and B. Ellis. iv TABLE OF CONTENTS Signature Page ................................................................................................................... iii Dedication .......................................................................................................................... iv Table of Contents ................................................................................................................ v List of Figures ................................................................................................................... vii List of Tables ................................................................................................................... viii List of Charts....................................................................................................................... x List of Images .................................................................................................................... xi Acknowledgments............................................................................................................. xii Vita ................................................................................................................................... xiv Abstract of the Dissertation ............................................................................................. xvi Foreword: The Place of Communication within the Dissertation ...................................... 1 Chapter 1: Introduction: Post-9/11 Anxiety and the Problem of Critical Infrastructure Protection ............................................................................................................................ 9 Chapter 2: Stumbling Toward Resilience: Revisiting and Rethinking Infrastructure Regulation ......................................................................................................................... 32 Chapter 3: The Political Origins of Infrastructure Vulnerability: Regulatory Reform, Tight Coupling, and Complex Systems .......................................................................... 113 Chapter 4: Risk, Politics, and Culture: Risk Society and Reflexive Modernization ...... 206 Chapter 5: Delivering the Mail: Terrorism, Efficiency, and the Politics of Post-Anthrax Bioterrorism Security ...................................................................................................... 231 Chapter 6: Green Security? The Environmental Movement, the Transportation of Hazardous Materials, and the War on Terror.................................................................. 311 Chapter 7: The Creation of Mandatory Cybersecurity Reliability Standards: Autonomy, Interdependency, and Electric Power ............................................................................. 349 Conclusion: The Politics of Critical Infrastructure Protection ....................................... 394 v References ....................................................................................................................... 404 vi LIST OF FIGURES Figure 3-1: ISO and RTO North American Operating Map ........................................... 204 Figure 3-2: Typical Elements of a Control System ........................................................ 205 Figure 5-2: Features of Intelligent Mail Barcode ........................................................... 308 Figure 5-3: Sample Intelligent Mail Barcode ................................................................. 309 vii LIST OF TABLES Table 2-1: Post Office Mail Volume and Clerks Employed, 1910-1968 ....................... 104 Table 2-2: Postal Employment, 1930-1968 .................................................................... 104 Table 2-3: Postal Operating Deficit, 1926-1969 ............................................................. 105 Table 2-4: Postal Deficit as Percentage of Total Annual Postal Expenditures, 1926-1969 ................................................................................................ 106 Table 2-5: Post Office Department Appropriation Categories ....................................... 107 Table 2-6: Post Office Research and Development Spending, 1950-1969 .................... 108 Table 2-7: Percentage of Total Postal Obligations Devoted to Research and Development, 1950-1970 ................................................................................................ 108 Table 2-8: Annual Postal Investment in Large Capital Projects, 1955-1967 ................. 109 Table 2-9: Percentage of Postal Obligations Devoted to Large Capital Projects, 1955-1967 ........................................................................................................ 110 Table 2-10: U.S. Rail Mileage, 1840-1920 ..................................................................... 111 Table 2-11: Percentage of Inter-City Freight Carried by Rail, 1930-1980 ..................... 111 Table 2-12: Percentage of Industrial Chemicals by Mode of Transportation, 1963-1977 .............................................................................................. 112 Table 3-1: Postal Operating Deficit, 1926-1969 ............................................................. 199 Table 3-2: Percentage of USPS Mail Volume Sorted Mechanically, 1968-1980........... 200 Table 3-3: Average Return on Investment Per Decade, Railroad Industry, 1940s-2000s ..................................................................................................... 201 Table 3-4: Percentage Utility and Non-Utility U.S. Electricity Generation, 1990-2009 ................................................................................................... 202 Table 3-5: Total U.S. Electricity Generation and Resale, 1998-2009 ............................ 203 Table 5-1: Cross-Contamination of U.S. Postal Facilities .............................................. 304 Table 5-2: Characteristics of Five Processing and Distribution Centers Involved in 2001 viii Anthrax Attacks .............................................................................................................. 306 Table 5-3: Labor Costs as Percent of Total USPS Costs ................................................ 310 Table 7-1: Proposed Cybersecurity Standards: CIP-002–CIP-009 ................................. 392 ix LIST OF CHARTS Chart 5-1: Simplified Model of Mail Processing and Distribution Network .................. 305 Chart 5-2: Cross-Contamination of U.S. Postal Facilities .............................................. 307 x LIST OF IMAGES Image 6-1: Chemicals of Mass Destruction .................................................................... 348 xi ACKNOWLEDGMENTS The dissertation could not have been written without the assistance, support, and encouragement of many important individuals and key institutions. In particular, I would like to thank my advisor, Robert Horwitz, for his unfailing support and incisive comments over the past several years. His willingness to make my dissertation a priority and engage with new drafts, often with little more than a moment’s notice, is much appreciated. I would also like to thank my committee members—Lewis Branscomb, Gary Fields, Akos Rona-Tas, Michael Schudson—for their feedback and encouragement. I would also like to thank Jessica Wallack for her involvement during the early stages of the dissertation. Without their assistance, the project would simply not have been possible. While completing the dissertation, I was fortunate to be apart of a variety of fertile intellectual and collegial work environments. The staff, faculty members, and fellow graduate students of the Department of Communication, University of California, San Diego (UCSD) provided a rich and interesting workplace which I feel lucky to have experienced. In particular, I would like to thank current and former graduate colleagues Lyn Headley, Kinda Al-Fityani, Michael Esposito, J.R. Osborn, Zara Mirmalek, and Ray- Shyng Chou. Colleagues at the Muir College Writing Program, UCSD likewise offered support and fine examples of professional decorum while
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