In the
United States Court of Appeals For the Seventh Circuit ____________________ Nos. 24-2109, 24-2156 & 25-2084 GRAND TRUNK CORPORATION and ILLINOIS CENTRAL RAILROAD COMPANY, doing business as CN, Petitioners,
v.
TRANSPORTATION SECURITY ADMINISTRATION and HA NGUYEN MCNEILL, in her official capacity as Acting Administrator of the Transportation Security Administration, Respondents. ____________________
On Petitions for Review of Orders of the Transportation Security Administration. Security Directives 1580/82-2022-01B, 1580/82-2022-01C & 1580/82-2022-01D. ____________________
ARGUED JANUARY 16, 2025 — DECIDED AUGUST 21, 2025 ____________________
Before SCUDDER, KIRSCH, and LEE, Circuit Judges. KIRSCH, Circuit Judge. In response to urgent, ongoing cy- bersecurity threats posed by foreign adversaries, the Trans- portation Security Administration issued five successive secu- rity directives requiring regulated railroads to implement a 2 Nos. 24-2109, 24-2156 & 25-2084
number of expensive preventive measures. When issuing the directives, TSA bypassed notice-and-comment rulemaking by invoking an emergency-procedures exemption under 49 U.S.C. § 114(l)(2). Petitioners Grand Trunk Corporation and Illinois Central Railroad Company—regulated freight rail- road carriers—challenge the most recent directives on various grounds, arguing chiefly that the directives were required to undergo notice and comment because the ongoing threat of cyberattacks does not constitute an emergency within the meaning of § 114(l)(2). But we disagree and deny the peti- tions, especially given the serious national security concerns attendant in this case. In doing so, we rely only on information TSA expressly included in its directives and not on any of the classified material it submitted for our review. I In October 2022, the Transportation Security Administra- tion issued a security directive entitled Rail Cybersecurity Mitigation Actions and Testing. The directive expired after one year, and TSA has re-issued updated directives each year since. Grand Trunk Corporation and its subsidiary, Illinois Central Railroad Company, (collectively, CN) challenge the version of the directive issued in May 2024 as well as a July 2024 correction superseding the May directive. We heard oral argument on those challenges in January 2025. Then, in May, the July 2024 directive expired, so TSA issued a renewed di- rective. CN filed a separate petition challenging that May 2025 directive, which we docketed as appeal number 25-2084. Be- cause the May 2025 directive is substantively identical to the July 2024 directive, we now consolidate CN’s challenge to the May 2025 directive with its challenges to the May 2024 and July 2024 directives. Nos. 24-2109, 24-2156 & 25-2084 3
Similar to those before them, the July 2024 and May 2025 directives require certain railroads and railroad carriers—spe- cifically, higher-risk rail operations and freight railroads that are part of the Strategic Rail Corridor Network (STRACNET)—to take extensive actions to safeguard against cybersecurity attacks. Higher-risk rail operations include car- riers with annual operating revenues of $900 million or more and carriers that transport “[r]ail security-sensitive materials” like explosives, poisonous gases, hazardous liquids, and radi- oactive materials. See 49 C.F.R. §§ 1201.1-1(a), 1580.101, 1580.3. STRACNET railroads are part of the Depart- ment of Defense Railroads and Highways for National De- fense program, which ensures that the nation’s rail infrastruc- ture can transport military supplies and equipment from fort to port in the event of a conflict. The directives require these covered railroads to enact Cybersecurity Implementation Plans, which, among other things, mandate network segmen- tation policies, continuous cybersecurity monitoring, and timely security patches and updates to Critical Cyber Sys- tems. The directives also require covered railroads to develop Cybersecurity Assessment Plans and submit annual updates to TSA for approval. Though TSA has regulated by security directive over the last few years, it has also initiated informal rulemaking. In November 2024, TSA issued a notice of proposed rulemaking and sought comments on its railroad cybersecurity plan. En- hancing Surface Cyber Risk Management, 89 Fed. Reg. 88488, 88488 (proposed Nov. 7, 2024). The comment window closed in February 2025. Id. TSA has taken no additional steps to promulgate a final rule. In its notice of proposed rulemaking, TSA estimated that the annual cost to the freight rail industry of complying with its cyber risk management program would 4 Nos. 24-2109, 24-2156 & 25-2084
be about $100 million. Id. at 88535. These significant costs— many of which railroads already incur to comply with the ex- isting security directives—in large part prompted CN’s law- suit. At the same time, serious national security concerns moti- vate the security directives. The country’s rail network is crit- ical to national defense and economic vitality. The military re- lies on it to move supplies and equipment, and industry de- pends on it to transport food and manufacturing materials. As TSA explains in the July 2024 and May 2025 directives, even minor disruptions in critical rail systems could lead to temporary product shortages that would endanger our na- tional security. And prolonged disruptions in the flow of commodities could lead to widespread supply chain disrup- tions, with ripple effects across the economy. The government reports that these concerns are far from theoretical—they are real, acute, and ever-present. The July 2024 and May 2025 directives assert that “ongoing cybersecu- rity threat[s]” necessitate the directives: “Recent and evolving intelligence emphasizes the growing sophistication of nefari- ous persons, organizations, and governments, highlights vul- nerabilities, and intensifies the urgency of implementing the requirements of this Security Directive.” Specifically, the di- rectives cite significant threats from foreign adversaries like Russia, China, and independent cybercriminals. For example, a joint cybersecurity advisory from the United States and al- lies warns “that Russia’s invasion of Ukraine could expose or- ganizations both within and beyond the region to increased malicious cyber activity … [which] may occur as a response to the unprecedented economic costs imposed on Russia as well as materiel support provided by the United States and Nos. 24-2109, 24-2156 & 25-2084 5
U.S. allies and partners.” U.S. Dep’t of Defense, Joint Cyber- security Advisory, AA22-110A, Russian State-Sponsored and Criminal Cyber Threats to Critical Infrastructure (2022). 1 The joint advisory further explains that “the Russian government is exploring options for potential cyberattacks,” and details “[r]ecent Russian state-sponsored cyber operations” to under- score the looming risk of another attack. It also discusses threats made by independent cybercrime groups sympathetic to the Russian government. As for China, the directives cite another joint cybersecurity advisory that warns of a state- sponsored cyber actor whose activity “affects networks across U.S. critical infrastructure sectors.” Cybersec. & Infrastruc- ture Sec. Agency, AA23-144A, Joint Cybersecurity Advisory: People’s Republic of China State-Sponsored Cyber Actor Liv- ing off the Land to Evade Detection (2023). 2 Additionally, the July 2024 directive relies on the 2023 Of- fice of the Director of National Intelligence’s Annual Threat Assessment of the U.S. Intelligence Community.3 This report details acute and ongoing threats from Russia, China, Iran, and North Korea. It finds that “Russia will remain a top cyber threat as it refines and employs its espionage, influence, and attack capabilities,” and explains that “Russia views cyber disruptions as a foreign policy lever to shape other countries’
1 https://media.defense.gov/2022/Apr/20/2002980529/-1/-1/1/joint_csa
_russian_state-spon-sored_and_criminal_cyber_threats_to_critical_infra- structure_20220420.pdf_20_22_Final.pdf, archived at https://perma.cc/ 4BRQ-YXW9. 2 https://www.cisa.gov/news-events/cybersecurity-advisories/aa23- 144a, archived at https://perma.cc/L75J-3NJP. 3 https://www.dni.gov/files/ODNI/documents/assessments/ATA- 2023-Unclassified-Report.pdf, archived at https://perma.cc/B94Z-2TK3. 6 Nos. 24-2109, 24-2156 & 25-2084
decisions.” Id. at 15. Similarly, the report states that “China probably currently represents the broadest, most active, and persistent cyber espionage threat to U.S. Government and pri- vate-sector networks.” Id. at 10. It cautions that “China almost certainly is capable of launching cyber attacks that could dis- rupt critical infrastructure services within the United States, including against … rail systems.” Id. The May 2025 directive cites the 2025 iteration of the same report, which suggests that the cybersecurity threats have only become more urgent. Off. of the Dir. of Nat’l Intel., An- nual Threat Assessment of The U.S. Intelligence Community (2025). 4 The 2025 report observes that “Russia will continue to be able to deploy anti-U.S. … cyberattacks … to try to com- pete below the level of armed conflict and fashion opportuni- ties to advance Russian interests,” and that “Russia’s ad- vanced cyber capabilities, its repeated success compromising sensitive targets for intelligence collection, and its past at- tempts to pre-position access on U.S. critical infrastructure make it a persistent counterintelligence and cyber attack threat.” Id. at 17, 19. The report further finds that “Moscow’s unique strength is the practical experience it has gained inte- grating cyber attacks and operations with wartime military action, almost certainly amplifying its potential to focus com- bined impact on U.S. targets in time of conflict.” Id. at 19. Demonstrating the concrete risk of a Russian cyberattack, the report adds, “Russia has demonstrated real-world disruptive capabilities during the past decade, including gaining
4 https://www.dni.gov/files/ODNI/documents/assessments/ATA- 2025-Unclassified-Report.pdf, archived at https://perma.cc/824Q-2ZT3. Nos. 24-2109, 24-2156 & 25-2084 7
experience in attack execution by relentlessly targeting Ukraine’s networks with disruptive and destructive mal- ware.” Id. at 20. Regarding China, the 2025 report maintains that China “will continue conducting wide-ranging cyber operations against U.S. targets for both espionage and strategic ad- vantage.” Id. at 9. And it cites recent Chinese cybersecurity attacks on American infrastructure to emphasize the contin- ued threat: “[China]’s campaign to preposition access on crit- ical infrastructure for attacks during crisis or conflict, tracked publicly as Volt Typhoon, and its more recently identified compromise of U.S. telecommunications infrastructure, also referred to as Salt Typhoon, demonstrates the growing breadth and depth of [China]’s capabilities to compromise U.S. infrastructure.” Id. at 11. Faced with these “ongoing cybersecurity threat[s]” that may strike at any moment, the directives conclude that TSA’s cybersecurity requirements “continue to be necessary to pro- tect the national security, economy, and public health and safety of the United States and its citizens from the impact of malicious cyber-intrusions affecting the nation’s railroads.” In response, CN applied directly to us for review of the May 2024, July 2024, and May 2025 directives. Title 49 U.S.C. § 46110(a) permits “a person disclosing a substantial interest in an order issued by [TSA]” under 49 U.S.C. § 114(l) to chal- lenge the order “in the court of appeals of the United States for the circuit in which the person … has its principal place of business.” Illinois is the principal place of business for both Grand Trunk Corporation and Illinois Central Railroad Com- pany, so they petitioned our court for direct review collec- tively as CN, arguing primarily that the directives must 8 Nos. 24-2109, 24-2156 & 25-2084
undergo notice and comment. CN also argues that TSA was required to conduct a cost-benefit analysis before issuing the directives, that TSA lacked statutory authority to issue the di- rectives, and that TSA’s decisions to issue the directives were arbitrary and capricious. We disagree on all fronts. II A As a general matter, agencies—including TSA—may only promulgate rules after giving notice and accepting public comments. 5 U.S.C. § 553; see also Perez v. Mortg. Bankers Ass’n, 575 U.S. 92, 95–97 (2015). But here, a provision of TSA’s enabling act, 49 U.S.C. § 114(l)(2), provides an exception in emergencies: (2) Emergency procedures.— (A) In general.— Notwithstanding any other provision of law or execu- tive order (including an executive order requiring a cost-benefit analysis), if the Administrator determines that a regulation or security directive must be issued immediately in order to protect transportation secu- rity, the Administrator shall issue the regulation or se- curity directive without providing notice or an oppor- tunity for comment and without prior approval of the Secretary. (B) Review by transportation security oversight board.— Any regulation or security directive issued under this paragraph shall be subject to review by the Transpor- tation Security Oversight Board established under Nos. 24-2109, 24-2156 & 25-2084 9
section 115. Any regulation or security directive issued under this paragraph shall remain effective for a pe- riod not to exceed 90 days unless ratified or disap- proved by the Board or rescinded by the Administra- tor. Each time TSA has issued a security directive, it has in- voked § 114(l)(2) and claimed that this section allows it to cir- cumvent notice and comment. CN contends otherwise, argu- ing that the ongoing cybersecurity threats TSA cites do not constitute an emergency justifying the evasion of notice and comment. Our question is a narrow one: does the constant cy- bersecurity threat presented by foreign adversaries, as de- scribed in the relevant security directives, constitute an emer- gency within the meaning of § 114(l)(2)? CN argues for a layman’s conception of emergency, con- tending that an emergency is a definite, unforeseen exigency that requires an immediate response. Understood this way, an emergency occurs rarely, like a “fire, flood, or earthquake.” Home Bldg. & Loan Ass'n v. Blaisdell, 290 U.S. 398, 439 (1934). So, CN says, an ongoing threat cannot be an emergency. CN’s position has intuitive appeal. But to define emer- gency, we must start not with intuition but with the specific text of the statute before us. Under § 114(l)(2), “[e]mergency procedures” are necessary, such that TSA “shall” skip notice and comment, when TSA “determines” that “immediate[]” action is required “to protect transportation security.” This standard defines the agency’s emergency authority and, in broad terms, imbues TSA with significant discretion to insti- tute procedures to mitigate sophisticated and acute cyberse- curity risks facing certain rail operations and freight railroads. 10 Nos. 24-2109, 24-2156 & 25-2084
Historical practice demonstrates that emergencies can be ongoing and need not be limited to a definable time period. For decades, in varied contexts, and under analogous statutes, the federal government has declared emergencies that have lasted years. For a recent example, take the COVID-19 emer- gency, which lasted three years. National Emergencies Act, Pub. L. No. 118-3, 137 Stat. 6 (2023) (declared under the Na- tional Emergencies Act, 50 U.S.C. §§ 1601–1651). Stretching back further, the Declaration of National Emergency by Rea- son of Certain Terrorist Attacks has been in effect since Sep- tember 2001. Proclamation 7463, 66 Fed. Reg. 48199 (Sept. 14, 2001) (declared under National Emergencies Act); Continua- tion of the National Emergency With Respect to Certain Ter- rorist Attacks, 89 Fed. Reg. 74101 (Sept. 9, 2024). Further still, there are currently six national emergencies that have existed for over 25 years. Brennan Center for Justice, Declared Na- tional Emergencies Under the National Emergencies Act (2025). 5 That includes an emergency declared against Iran in 1979 under the International Emergency Economic Powers Act (IEEPA), 50 U.S.C. §§ 1701–1707. See Continuation of the National Emergency With Respect to Iran, 89 Fed. Reg. 87761 (Nov. 1, 2024). Relatedly, in 1995, the President declared a separate emergency against Iran and imposed sanctions. Pro- hibiting Certain Transactions With Respect to the Develop- ment of Iranian Petroleum Resources, Executive Order 12957, 60 Fed. Reg. 14615 (Mar. 15, 1995) (declared under IEEPA and National Emergencies Act). That emergency is renewed an- nually, e.g., Continuation of the National Emergency With
5 https://www.brennancenter.org/our-work/research-reports/de- clared-national-emergencies-under-national-emergencies-act, archived at https://perma.cc/F7JH-ZRK7. Nos. 24-2109, 24-2156 & 25-2084 11
Respect to Iran, 90 Fed. Reg. 11887 (Mar. 7, 2025), just as TSA’s security directives are here. In short, long-lasting emergencies are nothing new. And it is not as though TSA presented the cybersecurity threats as a fait accompli in October 2022 and hung its hat on the same stale intelligence ever since. Rather, TSA consults “[r]ecent and evolving intelligence” to update and revise each successive security directive. It is appropriate for TSA to rely on updated intelligence to protect transportation security by taking measures to prevent an attack. Just the same, it is also appropriate for TSA to recognize that security directives are probably not the appropriate mechanism to permanently in- stitute elaborate compliance programs. To that end, in each revised directive, TSA has stated its “inten[t] to more perma- nently codify the[] [directive’s] requirements through rule- making.” The recently closed comment window suggests such codification is near. In the meantime, TSA’s tailoring of the security directives to current intelligence has apparently satisfied other execu- tive branch agencies. Under § 114(l)(2)(B), security directives expire after 90 days, but they may last up to a year if the Transportation Security Oversight Board ratifies them, see FAA Extension, Safety, and Security Act of 2016, Pub. L. No. 114-190, § 3409, 130 Stat. 615, 662 (2016) (TSA shall “review” and “update” security directives “annually”). The Board— comprised of representatives from the Departments of Home- land Security, Transportation, Justice, Defense, and Treasury, the Office of the Director of National Intelligence, and the Na- tional Security Council, 49 U.S.C. § 115(b)—has repeatedly 12 Nos. 24-2109, 24-2156 & 25-2084
ratified the directives, indicating a unified view within the ex- ecutive that the directives are necessary. 6 We are sensitive to the longstanding tradition of affording the executive deference in matters of national security. See, e.g., Haig v. Agee, 453 U.S. 280, 291–92 (1981); Trump v. Hawaii, 585 U.S. 667, 684–87, 703–05 (2018). “[C]ourts traditionally have been reluctant to intrude upon the authority of the Ex- ecutive in military and national security affairs” unless “Con- gress specifically has provided otherwise.” Dep’t of Navy v. Egan, 484 U.S. 518, 530 (1988). Here, of course, Congress has not provided otherwise; to the contrary, § 114(l)(2) expressly confers authority on TSA to institute emergency procedures to protect transportation security. TSA is well-equipped to do so as part of the executive branch, given the executive’s intel- ligence capacity and ability to react promptly to risks to the nation’s security. See United States v. Curtiss-Wright Exp. Corp., 299 U.S. 304, 320 (1936). Though we are mindful that “[n]ational-security concerns must not become a talisman used to ward off inconvenient claims,” Ziglar v. Abbasi, 582 U.S. 120, 143 (2017), or to compel “abdication of the judicial role,” Holder v. Humanitarian L. Pro- ject, 561 U.S. 1, 34 (2010), we are also loathe to “second-guess expert agency judgments on potential risks to national
6 The May 2025 directive’s 90-day expiration date was August 1, 2025.
The public record does not reflect Board ratification of the May 2025 di- rective, but because the parties have not advised us otherwise, we pre- sume such ratification has occurred. Previously, there have been delays between ratification and publication in the Federal Register, e.g., Ratifica- tion of Security Directives, 90 Fed. Reg. 6777-01, 6777 (Jan. 21, 2025) (pub- lishing official notice of ratification that occurred six months earlier on July 29, 2024), and we assume the same has happened here. Nos. 24-2109, 24-2156 & 25-2084 13
security” when we traditionally “defer to the informed judg- ment of agency officials whose obligation it is to assess such risks,” Bonacci v. TSA, 909 F.3d 1155, 1161–62 (D.C. Cir. 2018) (cleaned up). Congress made TSA “responsible for security in all modes of transportation,” 49 U.S.C. § 114(d), and “we ac- cord substantial deference to TSA’s judgments in carrying out its statutory mandate,” Bonacci, 909 F.3d at 1161. Typically, then, “in cases of this sort, we must defer to TSA actions that reasonably interpret and enforce the safety and security obli- gations of the agency.” Olivares v. TSA, 819 F.3d 454, 462 (D.C. Cir. 2016). We see no reason to break with tradition here. We have no cause to distrust the government’s intelligence re- ports regarding cybersecurity threats from foreign adver- saries. And the applicable statute, 49 U.S.C. § 114(l)(2), grants TSA great latitude to determine whether those constantly looming threats—which it warns could cripple our national rail infrastructure—are an acute and ever-present problem tantamount to an ongoing emergency. Informed by recent and evolving intelligence, TSA has ex- ercised its discretion to determine that the threats constitute an emergency and that “security directive[s] must be issued immediately in order to protect transportation security.” Id. Seven high-ranking officials from other agencies agreed. Given the broad statutory language empowering TSA with significant discretion, the historical precedent under analo- gous statutes that emergencies may last many years, the tra- dition of national security deference (especially to TSA on matters of transportation security), and the Transportation Security Oversight Board’s ratifications, we accept TSA’s de- termination that immediate action was required and notice and comment was not. 14 Nos. 24-2109, 24-2156 & 25-2084
B CN next argues that we must vacate the security directives because TSA failed to conduct a cost-benefit analysis. Title 49 U.S.C. § 114(l)(3) provides: In determining whether to issue, rescind, or revise a regulation under this section, the [TSA] Administrator shall consider, as a factor in the final determination, whether the costs of the regulation are excessive in re- lation to the enhancement of security the regulation will provide. From this language, CN derives a requirement that TSA must conduct a cost-benefit analysis before issuing security direc- tives. But, by its terms, § 114(l)(3) does not apply to security directives. Section 114(l)(2) references “a regulation or secu- rity directive,” while § 114(l)(3) references only a “regula- tion.” “Where Congress includes particular language in one section of a statute but omits it in another section of the same Act, it is generally presumed that Congress acts intentionally and purposely in the disparate inclusion or exclusion.” City & County of San Francisco v. EPA, 145 S. Ct. 704, 713–14 (2025) (cleaned up). As such, § 114(l)(3) does not require TSA to con- sider whether the costs of a security directive are excessive in relation to the enhancement of security it will provide. C To issue the security directives, TSA invoked its authority under 49 U.S.C. §§ 114(d), (f), (l), and (m). CN argues that TSA has no substantive authority under § 114 to issue the security directives and, further, that Congress did not empower TSA to regulate rail cybersecurity at all. But CN reads § 114 too narrowly. Nos. 24-2109, 24-2156 & 25-2084 15
Congress charged TSA with “responsib[ility] for security in all modes of transportation.” Id. § 114(d). That includes “se- curity responsibilities over other modes of transportation that are exercised by the Department of Transportation,” id. § 114(d)(2), which, in turn, covers railroads, see id. § 103. Fur- ther, Congress required that TSA “shall” “assess threats to transportation” and “develop policies, strategies, and plans for dealing with threats to transportation security.” Id. § 114(f)(2) & (3). TSA must also “inspect, maintain, and test security facilities, equipment, and systems,” “ensure the ade- quacy of security measures for the transportation of cargo,” “oversee the implementation, and ensure the adequacy, of se- curity measures at … transportation facilities,” and “carry out such other duties, and exercise such other powers, relating to transportation security as the [TSA] Administrator considers appropriate, to the extent authorized by law.” Id. § 114(f)(9)– (11), (16). TSA thus has extensive authority to regulate secu- rity generally for all modes of transportation, and it has au- thority to impose the rail cybersecurity regulations at issue here. CN contends that § 114 only requires TSA to take actions itself and does not empower it to externally regulate the rail industry. But the statutory text is plainly to the contrary. TSA “is authorized to issue, rescind, and revise such regulations as are necessary to carry out the functions of the Administra- tion.” Id. § 114(l)(1). Because those functions include develop- ing policies, strategies, and plans to address transportation se- curity threats as well as assessing such threats, id. § 114(f)(2) & (3), TSA has the authority to issue and revise the security directives—which reflect TSA’s assessment of and plans to address rail security threats. In addition, TSA’s functions in- clude affirmative obligations to regulate externally. TSA is 16 Nos. 24-2109, 24-2156 & 25-2084
responsible for the security of the rail system, see id. § 114(d), which it protects in part by ensuring the adequacy of security measures for cargo transportation and overseeing the imple- mentation of security measures at transportation facilities, id. § 114(f)(10)–(11). In sum, TSA derives power to issue the di- rectives from a mosaic of affirmative grants of authority spread across § 114. D Last, CN contends that the July 2024 and May 2025 secu- rity directives were arbitrary and capricious—first, because the directives were not sufficiently tailored to the cybersecu- rity threats and, second, because TSA did not engage in rea- soned decision-making by failing to explain why it skipped notice and comment and a cost-benefit analysis. The Admin- istrative Procedure Act requires us to “set aside agency ac- tion” that is “arbitrary, capricious, an abuse of discretion, or otherwise not in accordance with law.” 5 U.S.C. § 706(2)(A). To survive an arbitrary and capricious challenge, TSA’s ac- tions must “be reasonable and reasonably explained.” FCC v. Prometheus Radio Project, 592 U.S. 414, 423 (2021). We have already demonstrated why CN’s arguments fail. First, TSA has broad authority to identify cybersecurity threats and craft appropriate responses. That’s exactly what it did here, iteratively adjusting the security directives in re- sponse to recent and evolving intelligence. Further, the direc- tives do not regulate the entire rail industry but apply nar- rowly only to those railroads most critical to national and eco- nomic security—higher-risk and STRACNET railroads. Sec- ond, TSA did not need to explain why it bypassed notice and comment and a cost-benefit analysis because it was not Nos. 24-2109, 24-2156 & 25-2084 17
required to undertake either measure in the first place. Ac- cordingly, the security directives were not arbitrary or capri- cious. DENIED