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Center of Excellence for Operational Technology

The Center of Excellence for Operational Technology Traditional Presentation Abstract 2025 National Laboratories Information Technology Summit | Denver, CO Traditional Presentation Session Managing cybersecurity risk in Operational Technology (OT) presents a significant challenge across the Department, and critically, at many of the national laboratories. This includes IT-OT convergence, aging OT systems, cost of updating OT systems, and increased Advanced Persistent Threat efforts against OT including the 16 critical infrastructure sectors as listed in Presidential Policy Directive 21. DoE’s Office of Science and NNSA’s Office of the Chief Information Officer are taking the lead in addressing this challenge to include critical systems, by establishing the Center of Excellence (CoE) for Operational Technology. Championed by NNSA Deputy Chief Information Officer Steven McAndrews and the Office of Science Chief Information Officer Shila Cooch, the CoE for OT was chartered in February 2025 to address the challenges of OT cybersecurity and compliance. The CoE for OT will create partnerships and leverage expertise from across the NNSA National Security Enterprise and DOE Labs, Plants and Sites. The CoE will also collaborate with colleagues in other government agencies, industry partners and academia. The CoE for OT discussion at the National Laboratories Information Technology Summit ’25 will include the genesis of the CoE, stated goals, organizational structure, and the effort to attract OT subject matter experts to join the CoE effort to share knowledge and expertise. The discussion will include opportunities to get involved and contribute to this important effort. This session will be led by CoE for OT Co-Chairs Matt Kwiatkowski, Fermi National Laboratory Chief Information Security Officer, and Steven Weldon, Savannah River National Laboratory Cyber Program Director at the Georgia Cyber Center. The session will be of particular interest to CIOs, CTOs, CISOs, as well as IT and OT practitioners.

Kwiatkowski, Matt [Fermilab]

Enhancing Security and Resiliency in Operational Technology Environments Through Network Slicing and Federated Learning

The growing convergence of Information Technology (IT) and Operational Technology (OT) within Industry 4.0 environments has introduced new demands on industrial network infrastructure. As cyber-physical systems become increasingly interconnected, ensuring the secure, timely, and efficient exchange of critical data is essential. This thesis explores how network slicing, a method of creating isolated virtual network segments, can be applied within OT environments to address challenges such as latency, security, and resource allocation. The first research question addressed in this thesis is: How can OT networks take advantage of NFV and SDN technology to become cyber resilient? This study examines the operational, security, and architectural implications of introducing network slicing into traditionally static OT infrastructures such as Industrial Control Systems (ICS) and SCADA. Through simulated deployments and case studies, the research demonstrates how slicing enables better isolation between critical and non-critical services, thereby improving response time, throughput, and security in sensitive environments. The second question considers: How to dynamically implement network slicing and take advantage of network resources towards integrating decentralized machine learning? In response, this thesis proposes a framework that combines Software-Defined Networking (SDN), Network Function Virtualization (NFV), and Federated Learning (FL) to enable real-time analytics while maintaining data locality. The proposed approach reduces the burden on centralized infrastructure and minimizes privacy risks by supporting on-site training of models across distributed OT nodes, coordinated through dynamically allocated network slices. The third focus explores: How slicing helps to increase the resiliency of OT networks through the orchestration of a dynamic DMZ? To answer this, the thesis presents a method for creating and managing Dynamic Demilitarized Zones (DMZs) using network slicing. This enables flexible and automated isolation of sensitive subsystems during threat scenarios or high-risk operations. Coupled with intelligent orchestration and containerized security services, the dynamic DMZ significantly enhances the system's ability to respond to cyber incidents without halting production. Ultimately, this thesis contributes a comprehensive architecture that blends network slicing with machine learning, secure segmentation, and automation, paving the way for resilient, adaptive, and intelligent OT environments. Performance evaluations across multiple scenarios show improvements in system reliability, threat response time, model accuracy, and resource utilization, providing a strong foundation for future industrial automation systems.

Rodiles Delgado, Brian G

Identifying Adversarial Cyber-Activity in Operational Technology Environments Using Bayesian Networks

Critical infrastructure and other operational technology (OT) environments face increasing cybersecurity risks from adversarial behavior. This paper describes the development of a risk model using a Bayesian network to enhance the comprehension of observable cyber events caused by malicious activity in OT environments. The core of the Bayesian network is a process model that describes the stages of adversary behavior. The remainder of the model is based on the MITRE ATT&CK® for Industrial Control Systems (ICS) taxonomy, which includes tactics and techniques that may be used by the adversary. The observables provide evidence for adversary behavior through the intermediary technique and tactic nodes. One challenge in constructing this model is a lack of open-source data from cyber-attacks on OT systems. This paper discusses learning from limited data, the elicitation of expert opinion to construct the conditional probability tables when data is scarce, and the refinement of the most difficult conditional probabilities tables using several forms of sensitivity analyses. Finally, the Bayesian network is demonstrated using two historical case studies: the DarkSide ransomware attack on the Colonial Pipeline and the destructive cyberattack targeting the ThyssenKrupp blast furnace. Index Terms—Cybersecurity, industrial control systems, operational technology

97 - MATHEMATICS AND COMPUTING

Enhancing Cloud Cybersecurity: Prescriptive Controls for Operational Technology

This whitepaper provides strategic insights and recommendations into security cloud-based solutions for electric utilities, encompassing operational technology (OT), virtual power plants (VPP), distributed energy resources (DERs), applications, networks, and data storage as they transition to and leverage cloud infrastructure through managed service providers (MSPs) and cloud service providers (CSPs). Principles derived from established frameworks serve as a foundation for best practices across cybersecurity projects and remove the constraints of settling on a single framework. For organizations that prefer not to integrate a specific framework altogether, elements of the proposed approach could be adopted or tailored to best fit defined requirements and expected functionalities. The Cirrus assessment, a utility cloud feasibility tool, and the roadmap it provides serve as a precursor to this paper, which seeks to be a valuable resource for defining next steps following cloud technology integration feasibility appraisal. With its comprehensive approach to adoption, the Cirrus framework offers strategic guidance on responsibly preparing for or deploying a utility cloud solution. The previously published whitepaper, “Use Case-Informed Framework for Utility Cloud Migration,” details the guiding strategy, research, and deployment of cloud solutions within electric and interconnected grid systems. Before implementing the controls suggested in this document, it is recommended that stakeholders complete Cirrus's cloud integration assessment and pair the results with their unique cybersecurity controls to form a comprehensive cloud-based utility cybersecurity plan. The Cirrus outcome will consider a series of future architectures for the grid before and after the energy transition and evaluate the arguments for and against cloud applications for each electric and interconnected grid layer. This document is a companion to the original whitepaper, "Use Case-Informed Framework for Utility Cloud Migration" to further identify and recommend security controls based on Cirrus’s cloud integration assessment output. The following whitepaper outlines the cybersecurity controls that secure cloud-service models pertinent to the electric sector using the predefined categories identify, protect, detect, and respond and recover. The objective is to outline prescriptive security controls based on the type of architecture and data stored in the cloud. The focus includes dissecting the shared responsibility model and elucidating what on-premises Infrastructure as a Service (IaaS), Platform as a Service (PaaS), and Software as a Service (SaaS) entail. A pivotal consideration in this context is allocating responsibility for foundational cybersecurity aspects—having used Cirrus for the cloud integration assessment. The ensuing controls detailed herein also represent a checklist of controls necessary for a secure cloud transition, equipping utilities with the knowledge to navigate this digital transformation with confidence and strategic foresight in a safe and responsible manner.

42 ENGINEERING

Augmenting LLM-Based Agents for Improved Performance in Pentesting and Commissioning Operational Technology in Critical Infrastructure

Artificial intelligence (AI), and more specifically large language models (LLMs) have the potential for use in penetration testing (“pentesting”) against devices, networks, and computer systems in information technology (IT). We explore the possibility of extending pentesting from IT systems to operational technology (OT) systems, which are more obscure than IT systems in their protocols and design. A challenge therefore exists when applying pretrained LLMs to OT systems as corpora are likely to underrepresent OT systems in comparison to other more prevalent systems. We evaluate augmentations of LLMs with various methods, especially retrieval augmented generation (RAG), to improve performance of the LLMs in the OT domain. In addition to pentesting, some of the testing of these OT devices may include commissioning to ensure that the newly installed devices work correctly. Our framework may also be applied in such cases.

97 MATHEMATICS AND COMPUTING

Cybersecurity for the Operational Technology Environment (CyOTE) (Final Technical Report)

Electric grids have historically been susceptible to both physical attacks and environmental hazards but the implementation of smart grids, remote management, and self-healing networks, has now made the grid vulnerable to cyber attacks. To address risks introduced by routable connectivity, utilities must establish dynamic solutions to identify, protect, detect, respond to, and recover from cyber security threats and vulnerabilities. In response to the evolving threat landscape U.S. Department of Energy-Office of Cybersecurity, Energy Security, and Emergency Response (DOE CESER) initiated the Cybersecurity for the OT Environment (CyOTE) pilot program, a U.S. Department of Energy (DOE) effort designed to leverage U.S. intelligence capabilities to prevent, detect, or mitigate a cyber attack on utility operational technology (OT) networks. As part of the CyOTE pilot, The Southern Company (Southern Company or Southern) researched, evaluated and deployed emerging Commercial off the Shelf (COTS) technologies and cyber security monitoring architectures to provide previously unrealized network visibility and situational awareness through deep packet inspection and data analytics. This Final Scientific/Technical Report documents the objectives, methodology, lessons learned, and results of Southern Company’s participation in the CyOTE pilot from December 2018 to September 2023.

24 POWER TRANSMISSION AND DISTRIBUTION

Engineering Services in a Mission Critical Environment: Engineering Services - Science and Technology Operations’ Infrastructure Support at Los Alamos National Laboratory

As an engineering team within a facilities-driven organization, Engineering Services – Science and Technology Operations (ES-STO), supports Los Alamos National Laboratory (LANL), playing a pivotal role in the U.S. nuclear stockpile mission. This report outlines ES-STO’s contributions through the installation of crucial systems such as HVAC units, compressors, and scientific specialty equipment, as well as providing expert consultation to optimize laboratory operations. ES-STO’s goal is to ensure that LANL's infrastructure and research facilities are aligned with mission-critical needs, supporting both operational efficiency and safety in the nuclear stockpile management and maintenance. This report discusses the installation processes, ongoing consultations, and the significant impact of our efforts on national security objectives.

42 ENGINEERING

Network Slicing for Federated Learning in Operational Technology Environment

Industrial Control Systems (ICS) and Supervisory Control and Data Acquisition (SCADA) environments are essential to modern infrastructure, facing challenges in ensuring low-latency, high-throughput communication while mitigating cyber threats. This paper presents a framework integrating Federated Learning (FL) and network slicing with Quality of Service (QoS) to enable real-time monitoring without disrupting OT operations. Leveraging digital twin technology and Network Function Virtualization (NFV), the architecture supports predictive analytics and Industry 4.0 requirements. FL facilitates decentralized model training, preserving data privacy and scalability, though it introduces potential throughput constraints. Network slicing addresses this by creating dedicated virtualized segments optimized for performance and security. Advanced fault tolerance at the container and instance levels enhances system reliability. The proposed architecture ensures high throughput, low latency, and secure orchestration for real-time anomaly detection in OT networks. Performance evaluations validate its efficiency in throughput, deployment, and learning accuracy, providing a robust foundation for future ICS automation and data-driven decision-making.

Delgado, Brian G. Rodiles [University of Texas at

Reconfigurable Network Slicing Orchestration in Network Function Virtualization Compatible Operational Technology Environment

The ongoing transition to Industry 4.0, which is characterized by increased inter-connectivity of cyber-physical systems, requires having time-sensitive, high throughput, and secure transfer of critical data in industrial sites. In this context, network slicing emerges as a critical tool to ensure timely data delivery by provisioning the network resources to cater to specific applications’ requirements and mitigating potential cyber attacks. To address these challenges, this paper aims to tackle two key questions essential for the successful implementation of network slicing in industrial environments. First, it investigates architectural considerations for developing a network infrastructure capable of supporting network slicing functionalities effectively. The proposed approach significantly improves deployment efficiency over traditional manual configurations. Second, it delves into the automated orchestration process, elucidating the steps and components involved in transitioning from a static network management approach to dynamically leverage network function virtualization schemes for creating network slices in ad-hoc manner. The system demonstrates high throughput suitable for production-level solutions and maintains exceptionally low latency, making it ideal for ultra-reliable low-latency communications. Even with increased network demands, the system remains stable, with effective Quality of Service (QoS) management, ensuring reliable performance under varying conditions. The proposed architecture outlines the necessary components, services, and communication protocols required for a production-level orchestrator for network segmentation in SCADA environments.

Rodiles Delgado, Brian G.

Formally Verified ZTA Requirements for OT/ICS Environments with Isabelle/HOL

The clean energy transformation includes the integration of distributed energy resources with the power grid, which has led to a substantial increase in the complexity of power grids infrastructure and the underlying operational technology environment. Power grids infrastructure represents an operational technology environment that has become a system of systems, integrating heterogeneous devices which are both software-and hardware-intensive; as a result, there are increasing demands to exploit advances in the commodity of software-hardware infrastructures to improve energy systems requirements such as cybersecurity and resilience. In such a setting, system requirements at different levels mix, which leads to vulnerabilities and undesirable outcomes. The use of formal methods to characterize and prove system requirements removes ambiguity, increases automation, and provides high levels of assurance and reliability. In this paper, we contribute a methodology and a framework for the system-level verification of zero trust architecture requirements in operational technology environments. We define a formal specification for the core functionalities of operational technology environments, the corresponding invariants, and security proofs. Of particular note is our modular approach for the formal verification of asynchronous interactions in operational technology environments. The formal specification and the proofs have been mechanized using the interactive theorem proving environment Isabelle/HOL.

formal methods

Building Nuclear-Specific Cybersecurity Expertise in Higher Education

The rapid digitalization of nuclear power plants (NPPs) and the deployment of advanced and small modular reactors (A/SMRs) have expanded the cybersecurity attack surface within the nuclear sector. This evolution introduces unique challenges beyond those faced in general information technology (IT), operational technology (OT) and industrial control system (ICS) security, due to nuclear power’s regulatory rigor, safety-critical nature, and operational needs. A pressing workforce gap persists; cybersecurity graduates typically lack nuclear-specific context and retraining them for industry readiness requires 12–18 months, creating a significant burden. This paper addresses this gap by defining the domains of knowledge that nuclear cybersecurity specialists must master, spanning cybersecurity, nuclear engineering, OT/ICS security, and regulatory governance. We propose a curricular framework integrating technical, regulatory, and applied learning components to accelerate workforce readiness. Our approach builds on existing findings that current curricula inadequately integrate nuclear engineering and cybersecurity, shifting the discourse from why specialization is needed to what knowledge must be taught. The recommendations have implications for workforce development and long-term resilience of the nuclear energy sector.

99 - GENERAL AND MISCELLANEOUS

Large-Scale Hydrogen Storage Cyber Risk Assessment

Hydrogen storage systems may become more widely deployed throughout the country, and so it is possible that individual and interconnected systems will be exposed to cyber-attacks. These events can cause physical and financial harm to employees, people in the vicinity of the facility, and the company that owns the facility. The two main ways bad actors may access information or control from a hydrogen storage facility are through information technology and operations technology devices, the former of which refers to data and information from networked devices and the latter of which refers to onsite controls for the physical system. Both types of entryways into the system should be considered when companies conduct cyber risk assessments and when regulators develop or revise relevant codes and standards. This report analyzes cybersecurity risks associated with a generic hydrogen storage system by outlining the system's purpose and the importance of its cybersecurity. The hydrogen storage system architecture and communication protocols are provided to understand potential cyber vulnerabilities. Later, an event tree analysis is performed on hydrogen operation to identify system weaknesses by outlining potential attack scenarios. This report also identifies critical cyber assets related to different hydrogen operations followed by an examination of potential threats, and the impact of cyber assets on those operational assets.

08 HYDROGEN

Large-Scale Hydrogen Storage Cyber Risk Assessment

Hydrogen storage systems are becoming more widely deployed throughout the country, and as their presence continues to grow, it is possible that individual and interconnected systems will be exposed to cyber-attacks. These events can cause physical and financial harm to employees, people in the vicinity, and to the company that owns the facility. The two main mechanisms malicious actors may access information or control from a hydrogen storage facility are through information technology and operations technology devices, the former of which refers to data and information from networked devices and the latter of which refers to onsite controls for the physical system. Both types of entryways into the system should be considered when facility managers conduct cyber risk assessments and when regulators develop or revise relevant codes and standards. This report analyzes cybersecurity risks applicable to a wide variety of hydrogen storage systems by outlining the system's purpose and the importance of its cybersecurity. The hydrogen storage system architecture and communication protocols are provided to understand potential cyber vulnerabilities. Later, an event tree analysis is performed on hydrogen operation to identify system weaknesses by outlining potential attack scenarios. This report also identifies critical cyber assets related to different hydrogen operations followed by an examination of potential threats, and the impact of cyber assets on those operational assets.

08 HYDROGEN

Living-off-the-land Techniques Unlikely to Supplant Energy Sector-Focused OT-Specific Malware

Despite increased reports of energy sector-focused threat actors using living-off-the-land (LOTL) techniques, it is unlikely LOTL techniques will wholly supplant malware in energy sector operational technology (OT)-focused cyber operations. Threat actors leverage LOTL techniques to access energy sector networks, abstracting process information and maintaining persistence. Although threat actors using LOTL techniques have successfully interrupted energy sector industrial control environments, designed features of OT-specific malware likely increase the cyber-physical impact of an attack and delay recovery of critical functions and services. Malicious actors will very likely continue to use LOTL techniques for stealth, while designing malware to bolster final impacts on cyber-physical systems in energy sector OT environments.

99 GENERAL AND MISCELLANEOUS