Congressional Continuity of Operations (COOP): An Overview of Concepts and Challenges

Publication Date: February 2004

Publisher: Library of Congress. Congressional Research Service

Author(s):

Research Area: Government

Type:

Abstract:

Interruptions of congressional operations by incidents such as episodic computer virus infections, the anthrax contamination that took place during autumn 2001, and the ricin incident that took place in February 2004, have demonstrated the importance of congressional continuity of operations (COOP) planning. COOP planning refers to the internal effort of an organization to assure that the capability exists to continue essential functions in response to a comprehensive array of potential operational interruptions. For Congress, COOP planning is related to a second level of preparedness, continuity of government (COG) planning. Congressional COG planning focuses on ensuring that Congress is able to carry out its legislative responsibilities under Article I of the Constitution.

This report discusses the circumstances surrounding COOP planning, including provisions for alternative meeting sites and methods for conducting House and Senate meetings and floor sessions when Capitol facilities are not available. Although this report does not discuss COG planning beyond its direct relationship to COOP planning, a more comprehensive analysis of COG can be found in CRS Report RS21089, Continuity of Government: Current Federal Arrangements and the Future.

The task of ensuring that Congress can continue to carry out its constitutional responsibilities in case of disruption, presents unique challenges in addition to the operational concerns common to most organizations. One challenge involves the relocation of legislative activities. There appears to be no constitutional bar to the House and Senate adopting a resolution that approves meetings of either chamber outside the Capitol in advance of doing so. In addition, the rules of each chamber allow for committee activity beyond Washington, DC. However, concerns regarding the availability of appropriate alternative facilities, communication and technical capabilities, and providing the necessary physical security, have arisen.

Other concerns regarding physical security have prompted some observers to propose creating a virtual or electronic Congress (e-Congress). Although these suggestions have generally focused on the creation of a Web site accessible by Members anywhere in the country, it is unclear exactly how an e-Congress would be constituted and operated. Other challenges for COOP planning include maintaining Member office information security, and the Legislative Information System (LIS).

Although current congressional COOP planning began prior to September 11, 2001, details surrounding House and Senate COOP planning are not publicly available, and some specific information is excluded from this report to preserve operational security. Contingency planning in the House, however, has evolved over the past 20 years and there exists a range of backup strategies for maintaining critical House legislative and administrative information systems. In the Senate, initial COOP planning was completed in spring 2002, and continues to be refined.