    [Public Papers of the Presidents of the United States: George W. Bush (2002, Book I)]
    [March 11, 2002]
    [Pages 379-382]
    [From the U.S. Government Publishing Office www.gpo.gov]

    Homeland Security Presidential Directive-3--Homeland Security Advisory
    System
    March 11, 2002

    Purpose

        The Nation requires a Homeland Security Advisory System to provide a
    comprehensive and effective means to disseminate information regarding
    the risk of terrorist acts to Federal, State, and local authorities and
    to the American people. Such a system would provide warnings in the form
    of a set of graduated ``Threat Conditions'' that would increase as the
    risk of the threat increases. At each Threat Condition, Federal
    departments and agencies would implement a corresponding set of
    ``Protective Measures'' to further reduce vulnerability or increase
    response capability during a period of heightened alert.
        This system is intended to create a common vocabulary, context, and
    structure for an ongoing national discussion about the nature of the
    threats that confront the homeland and the appropriate measures that
    should be taken in response. It seeks to inform and facilitate decisions
    appropriate to different levels of government and to private citizens at
    home and at work.

    Homeland Security Advisory System

        The Homeland Security Advisory System shall be binding on the
    executive branch and suggested, although voluntary, to other levels of
    government and the private sector. There are five Threat Conditions,
    each identified by a description and corresponding color. From lowest to
    highest, the levels and colors are:

        Low = Green;
        Guarded = Blue;
        Elevated = Yellow;
        High = Orange;
        Severe = Red.

        The higher the Threat Condition, the greater the risk of a terrorist
    attack. Risk includes both the probability of an attack occurring and
    its potential gravity. Threat Conditions shall be assigned by the
    Attorney General in consultation with the Assistant to the President for
    Homeland Security. Except in exigent circumstances, the Attorney General
    shall seek the views of the appropriate Homeland Security Principals or
    their subordinates, and other parties as appropriate, on the Threat
    Condition to be assigned. Threat Conditions may be assigned for the
    entire Nation, or they may be set for a particular geographic area or
    industrial sector. Assigned Threat Conditions shall be reviewed at
    regular intervals to determine whether adjustments are warranted.
        For facilities, personnel, and operations inside the territorial
    United States, all Federal departments, agencies, and offices other than
    military facilities shall conform their existing threat advisory systems
    to this system and henceforth administer their systems consistent with
    the determination of the Attorney General with regard to the Threat
    Condition in effect.
        The assignment of a Threat Condition shall prompt the implementation
    of an appropriate set of Protective Measures. Protective Measures are
    the specific steps an organization shall take to reduce its
    vulnerability or increase its ability to respond during a period of
    heightened alert. The authority to craft and implement Protective
    Measures rests with the Federal departments and agencies. It is
    recognized that departments and agencies may have several preplanned
    sets of responses to a particular Threat Condition to facilitate a
    rapid, appropriate, and tailored response. Department and agency heads
    are responsible for developing their own Protective Measures and other
    antiterrorism or self-protection and continuity plans, and resourcing,
    rehearsing, documenting, and maintaining

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    these plans. Likewise, they retain the authority to respond, as
    necessary, to risks, threats, incidents, or events at facilities within
    the specific jurisdiction of their department or agency, and, as
    authorized by law, to direct agencies and industries to implement their
    own Protective Measures. They shall continue to be responsible for
    taking all appropriate proactive steps to reduce the vulnerability of
    their personnel and facilities to terrorist attack. Federal department
    and agency heads shall submit an annual written report to the President,
    through the Assistant to the President for Homeland Security, describing
    the steps they have taken to develop and implement appropriate
    Protective Measures for each Threat Condition. Governors, mayors, and
    the leaders of other organizations are encouraged to conduct a similar
    review of their organizations' Protective Measures.
        The decision whether to publicly announce Threat Conditions shall be
    made on a case-by-case basis by the Attorney General in consultation
    with the Assistant to the President for Homeland Security. Every effort
    shall be made to share as much information regarding the threat as
    possible, consistent with the safety of the Nation. The Attorney General
    shall ensure, consistent with the safety of the Nation, that State and
    local government officials and law enforcement authorities are provided
    the most relevant and timely information. The Attorney General shall be
    responsible for identifying any other information developed in the
    threat assessment process that would be useful to State and local
    officials and others and conveying it to them as permitted consistent
    with the constraints of classification. The Attorney General shall
    establish a process and a system for conveying relevant information to
    Federal, State, and local government officials, law enforcement
    authorities, and the private sector expeditiously.
        The Director of Central Intelligence and the Attorney General shall
    ensure that a continuous and timely flow of integrated threat
    assessments and reports is provided to the President, the Vice
    President, Assistant to the President and Chief of Staff, the Assistant
    to the President for Homeland Security, and the Assistant to the
    President for National Security Affairs. Whenever possible and
    practicable, these integrated threat assessments and reports shall be
    reviewed and commented upon by the wider interagency community.
        A decision on which Threat Condition to assign shall integrate a
    variety of considerations. This integration will rely on qualitative
    assessment, not quantitative calculation. Higher Threat Conditions
    indicate greater risk of a terrorist act, with risk including both
    probability and gravity. Despite best efforts, there can be no guarantee
    that, at any given Threat Condition, a terrorist attack will not occur.
    An initial and important factor is the quality of the threat information
    itself. The evaluation of this threat information shall include, but not
    be limited to, the following factors:
        1. To what degree is the threat information credible?
        2. To what degree is the threat information corroborated?
        3. To what degree is the threat specific and/or imminent?
        4. How grave are the potential consequences of the threat?

    Threat Conditions and Associated Protective Measures

        The world has changed since September 11, 2001. We remain a Nation
    at risk to terrorist attacks and will remain at risk for the foreseeable
    future. At all Threat Conditions, we must remain vigilant, prepared, and
    ready to deter terrorist attacks. The following Threat Conditions each
    represent an increasing risk of terrorist attacks. Beneath each Threat
    Condition are some suggested Protective Measures, recognizing that the
    heads of Federal departments and agencies are responsible for developing
    and implementing appropriate agency-specific Protective Measures:

    [[Page 381]]

        1. Low Condition (Green). This condition is declared when there is a
    low risk of terrorist attacks. Federal departments and agencies should
    consider the following general measures in addition to the agency-
    specific Protective Measures they develop and implement:
            a)   Refining and exercising as appropriate preplanned
                Protective Measures;
            b)   Ensuring personnel receive proper training on the Homeland
                Security Advisory System and specific preplanned department
                or agency Protective Measures; and
            c)   Institutionalizing a process to assure that all facilities
                and regulated sectors are regularly assessed for
                vulnerabilities to terrorist attacks, and all reasonable
                measures are taken to mitigate these vulnerabilities.
        2. Guarded Condition (Blue). This condition is declared when there
    is a general risk of terrorist attacks. In addition to the Protective
    Measures taken in the previous Threat Condition, Federal departments and
    agencies should consider the following general measures in addition to
    the agency-specific Protective Measures that they will develop and
    implement:
            a)   Checking communications with designated emergency response
                or command locations;
            b)   Reviewing and updating emergency response procedures; and
            c)   Providing the public with any information that would
                strengthen its ability to act appropriately.
        3. Elevated Condition (Yellow). An Elevated Condition is declared
    when there is a significant risk of terrorist attacks. In addition to
    the Protective Measures taken in the previous Threat Conditions, Federal
    departments and agencies should consider the following general measures
    in addition to the Protective Measures that they will develop and
    implement:
            a)   Increasing surveillance of critical locations;
            b)   Coordinating emergency plans as appropriate with nearby
                jurisdictions;
            c)   Assessing whether the precise characteristics of the threat
                require the further refinement of preplanned Protective
                Measures; and
            d)   Implementing, as appropriate, contingency and emergency
                response plans.
        4. High Condition (Orange). A High Condition is declared when there
    is a high risk of terrorist attacks. In addition to the Protective
    Measures taken in the previous Threat Conditions, Federal departments
    and agencies should consider the following general measures in addition
    to the agency-specific Protective Measures that they will develop and
    implement:
            a)   Coordinating necessary security efforts with Federal,
                State, and local law enforcement agencies or any National
                Guard or other appropriate armed forces organizations;
            b)   Taking additional precautions at public events and possibly
                considering alternative venues or even cancellation;
            c)   Preparing to execute contingency procedures, such as moving
                to an alternate site or dispersing their workforce; and
            d)   Restricting threatened facility access to essential
                personnel only.
        5. Severe Condition (Red). A Severe Condition reflects a severe risk
    of terrorist attacks. Under most circumstances, the Protective Measures
    for a Severe Condition are not intended to be sustained for substantial
    periods of time. In addition to the Protective Measures in the previous
    Threat Conditions, Federal departments and agencies also should consider
    the following general measures in addition to the agency-specific
    Protective Measures that they will develop and implement:
            a)   Increasing or redirecting personnel to address critical
                emergency needs;

    [[Page 382]]

            b)   Assigning emergency response personnel and prepositioning
                and mobilizing specially trained teams or resources;
            c)   Monitoring, redirecting, or constraining transportation
                systems; and
            d)   Closing public and government facilities.

    Comment and Review Periods

        The Attorney General, in consultation and coordination with the
    Assistant to the President for Homeland Security, shall, for 45 days
    from the date of this directive, seek the views of government officials
    at all levels and of public interest groups and the private sector on
    the proposed Homeland Security Advisory System.
        One hundred thirty-five days from the date of this directive the
    Attorney General, after consultation and coordination with the Assistant
    to the President for Homeland Security, and having considered the views
    received during the comment period, shall recommend to the President in
    writing proposed refinements to the Homeland Security Advisory System.

                                                              George W. Bush

    Note: This directive was released by the Office of the Press Secretary
    on March 12.