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1 0 11 0 1 0 1 0 10 1 0 1 0 0 1 0 0 0 111 0 1 0 1 0 0 1 0 1 0 111 0 1 0 1 0 111 0 1 0 1 0 11 0 11 0 1 0 1 0 1 0 1 0 111 0 1 0 1 0 1 0 0 0 1111 0 0 0 111 0 1 0 1 0 11 0 11 0 1 0 1 0 1 0 1 0 111 0 1 0 1 0 1 0 0 0 1 0 1 0 10 0 0 1 0 1 0 1111 0 0 0 111 0 1 0 1 0 11 0 11 0 1 0 1 0 1 0 1 0 111 0 1 0 1 0 1 0 0 0 1111 0 0 0 111 0 1 0 1 0 11 0 11 0 1 0 1 0 1 0 1 0 111 0 1 0 1 0 1 0 1 0 1 0 1 0 0 0 11 0 1 0 1 0 0 1 0 111 0 1 01 0 1 0 11 0 1 0 1 0 1 0 0 0 1111 0 0 0 111 0 1 0 1 0 11 0 11 0 1 0 1 0 1 0 1 0 111 0 1 0 1 0 1 0 1 0 1 0 1 0 0 0 11 0 1 0 1 0 1 0 11 0 1 0 1 0 1 0 1 0 1 0 111 0 1 0 1 0 111 0 1 0 1 0 111 0 1 0 11 0 1 01 0 0 1 0 1 0 1 0 0 1 0 1 0 111 0 1 0 1 0 1 0 111 0 1 0 1 0 1111 0 0 0 111 0 1 0 1 0 11 0 11 0 1 0 1 0 1 0 1 0 111 0 1 0 1 0 1 0 0 0 1111 0 0 0 111 0 1 0 1 0 11 0 11 0 1 0 1 0 1 0 1 0 1111 0 1 0 11 0T H EN A T I O N A LS T R A T E G YT OSECURECYBERSPACEF E B R U A R Y2 0 0 3

T H EN A T I O N A LS T R A T E G YT OSECURECYBERSPACEF E B R U A R Y2 0 0 3

THE WHITE HOUSEWASHINGTONMy Fellow Americans:The way business is transacted, government operates, and national defense isconducted have changed. These activities now rely on an interdependent networkof information technology infrastructures called cyberspace. The National Strategyto Secure Cyberspace provides a framework for protecting this infrastructure that isessential to our economy, security, and way of life.In the past few years, threats in cyberspace have risen dramatically. The policy ofthe United States is to protect against the debilitating disruption of the operationof information systems for critical infrastructures and, thereby, help to protect thepeople, economy, and national security of the United States. We must act to reduceour vulnerabilities to these threats before they can be exploited to damage thecyber systems supporting our Nation’s critical infrastructures and ensure that suchdisruptions of cyberspace are infrequent, of minimal duration, manageable, andcause the least damage possible.Securing cyberspace is an extraordinarily difficult strategic challenge that requires acoordinated and focused effort from our entire society—the federal government,state and local governments, the private sector, and the American people. Toengage Americans in securing cyberspace, a draft version of this strategy wasreleased for public comment, and ten town hall meetings were held around theNation to gather input on the development of a national strategy. Thousands ofpeople and numerous organizations participated in these town hall meetings andresponded with comments. I thank them all for their continuing participation.The cornerstone of America’s cyberspace security strategy is and will remain apublic-private partnership. The federal government invites the creation of, andparticipation in, public-private partnerships to implement this strategy. Only byacting together can we build a more secure future in cyberspace.

T A B L EO FC O N T E N T STable of ContentsExecutive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .viiIntroduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1Cyberspace Threats and Vulnerabilities: A Case for Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5National Policy and Guiding Principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13National Cyberspace Security PrioritiesPriority I: A National Cyberspace Security Response System . . . . . . . . . . . . . . . . . . . . . . . . . . . .19Priority II: A National Cyberspace Security Threat and Vulnerability Reduction Program . . . .27Priority III: A National Cyberspace Security Awareness and Training Program . . . . . . . . . . . . .37Priority IV: Securing Governments’ Cyberspace . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .43Priority V: National Security and International Cyberspace Security Cooperation . . . . . . . . . .49Conclusion: The Way Forward . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .53Appendix: Actions and Recommendations (A/R) Summary. . . . . . . . . . . . . . . . . . . . . . . . . . . . .55T H E N AT I O N A L S T R AT E G Y T O S E C U R E C Y B E R S PA C Ev

E X E C U T I V ES U M M A R YExecutive SummaryOur Nation’s critical infrastructures arecomposed of public and private institutions inthe sectors of agriculture, food, water, publichealth, emergency services, government, defenseindustrial base, information and telecommunications, energy, transportation, banking andfinance, chemicals and hazardous materials, andpostal and shipping. Cyberspace is their nervoussystem—the control system of our country.Cyberspace is composed of hundreds ofthousands of interconnected computers, servers,routers, switches, and fiber optic cables thatallow our critical infrastructures to work. Thus,the healthy functioning of cyberspace isessential to our economy and our nationalsecurity.This National Strategy to Secure Cyberspace ispart of our overall effort to protect the Nation.It is an implementing component of theNational Strategy for Homeland Security and iscomplemented by a National Strategy for thePhysical Protection of Critical Infrastructures andKey Assets. The purpose of this document is toengage and empower Americans to secure theportions of cyberspace that they own, operate,control, or with which they interact. Securingcyberspace is a difficult strategic challenge thatrequires coordinated and focused effort fromour entire society—the federal government,state and local governments, the private sector,and the American people.T H E N A T I O N A L S T R A T E G Y T O S E C U R E C Y B E R S P A C E vii

E X E C U T I V EThe National Strategy to Secure Cyberspaceoutlines an initial framework for both organizing and prioritizing efforts. It providesdirection to the federal government departments and agencies that have roles incyberspace security. It also identifies steps thatstate and local governments, private companiesand organizations, and individual Americanscan take to improve our collective cybersecurity.The Strategy highlights the role of publicprivate engagement. The document provides aframework for the contributions that we all canmake to secure our parts of cyberspace. Thedynamics of cyberspace will require adjustmentsand amendments to the Strategy over time.The speed and anonymity of cyber attacksmakes distinguishing among the actions ofterrorists, criminals, and nation states difficult, atask which often occurs only after the fact, if atall. Therefore, the National Strategy to SecureCyberspace helps reduce our Nation’s vulnerability to debilitating attacks against our criticalinformation infrastructures or the physicalassets that support them.Strategic ObjectivesConsistent with the National Strategy forHomeland Security, the strategic objectivesof this National Strategy to Secure Cyberspaceare to: Prevent cyber attacks against America’scritical infrastructures; Reduce national vulnerability to cyberattacks; and Minimize damage and recovery time fromcyber attacks that do occur.Threat and VulnerabilityOur economy and national security are fullydependent upon information technology andthe information infrastructure. At the core ofthe information infrastructure upon which wedepend is the Internet, a system originallyS U M M A R Ydesigned to share unclassified research amongscientists who were assumed to be uninterestedin abusing the network. It is that same Internetthat today connects millions of other computernetworks making most of the nation’s essentialservices and infrastructures work. Thesecomputer networks also control physical objectssuch as electrical transformers, trains, pipelinepumps, chemical vats, radars, and stockmarkets, all of which exist beyond cyberspace.A spectrum of malicious actors can and doconduct attacks against our critical informationinfrastructures. Of primary concern is the threatof organized cyber attacks capable of causingdebilitating disruption to our Nation’s criticalinfrastructures, economy, or national security.The required technical sophistication to carryout such an attack is high—and partiallyexplains the lack of a debilitating attack to date.We should not, however, be too sanguine. Therehave been instances where organized attackershave exploited vulnerabilities that may beindicative of more destructive capabilities.Uncertainties exist as to the intent and fulltechnical capabilities of several observedattacks. Enhanced cyber threat analysis isneeded to address long-term trends related tothreats and vulnerabilities. What is known isthat the attack tools and methodologies arebecoming widely available, and the technicalcapability and sophistication of users bent oncausing havoc or disruption is improving.In peacetime America’s enemies may conductespionage on our Government, universityresearch centers, and private companies. Theymay also seek to prepare for cyber strikes duringa confrontation by mapping U.S. informationsystems, identifying key targets, and lacing ourinfrastructure with back doors and other meansof access. In wartime or crisis, adversaries mayseek to intimidate the Nation’s political leadersby attacking critical infrastructures and keyeconomic functions or eroding public confidence in information systems.viii T H E N A T I O N A L S T R A T E G Y T O S E C U R E C Y B E R S P A C E

E X E C U T I V ECyber attacks on United States informationnetworks can have serious consequences such asdisrupting critical operations, causing loss ofrevenue and intellectual property, or loss of life.Countering such attacks requires the development of robust capabilities where they do notexist today if we are to reduce vulnerabilitiesand deter those with the capabilities and intentto harm our critical infrastructures.The Government Role in SecuringCyberspaceIn general, the private sector is best equippedand structured to respond to an evolving cyberthreat. There are specific instances, however,where federal government response is mostappropriate and justified. Looking inward,providing continuity of government requiresensuring the safety of its own cyber infrastructure and those assets required forsupporting its essential missions and services.Externally, a government role in cybersecurity iswarranted in cases where high transaction costsor legal barriers lead to significant coordinationproblems; cases in which governments operatein the absence of private sector forces;resolution of incentive problems that lead tounder provisioning of critical shared resources;and raising awareness.Public-private engagement is a key componentof our Strategy to secure cyberspace. This istrue for several reasons. Public-private partnerships can usefully confront coordinationproblems. They can significantly enhanceinformation exchange and cooperation.Public-private engagement will take a varietyof forms and will address awareness, training,technological improvements, vulnerabilityremediation, and recovery operations.A federal role in these and other cases is onlyjustified when the benefits of interventionoutweigh the associated costs. This standard isespecially important in cases where there areviable private sector solutions for addressing anypotential threat or vulnerability. For each case,S U M M A R Yconsideration should be given to the broadbased costs and impacts of a given governmentaction, versus other alternative actions, versusnon-action, taking into account any existing orfuture private solutions.Federal actions to secure cyberspace arewarranted for purposes including: forensics andattack attribution, protection of networks andsystems critical to national security, indicationsand warnings, and protection against organizedattacks capable of inflicting debilitating damageto the economy. Federal activities should alsosupport research and technology developmentthat will enable the private sector to bettersecure privately-owned portions of the Nation’scritical infrastructure.Department of Homeland Security andCyberspace SecurityOn November 25, 2002, President Bush signedlegislation creating the Department ofHomeland Security (DHS). This new cabinetlevel department will unite 22 federal entitiesfor the common purpose of improving ourhomeland security. The Secretary of DHS willhave important responsibilities in cyberspacesecurity. These responsibilities include: Developing a comprehensive national planfor securing the key resources and criticalinfrastructure of the United States; Providing crisis management in responseto attacks on critical information systems; Providing technical assistance to theprivate sector and other governmententities with respect to emergencyrecovery plans for failures of critical information systems; Coordinating with other agencies of thefederal government to provide specificwarning information and advice aboutappropriate protective measures andcountermeasures to state, local, andnongovernmental organizations includingT H E N A T I O N A L S T R A T E G Y T O S E C U R E C Y B E R S P A C E ix

E X E C U T I V Ethe private sector, academia, and thepublic; and Performing and funding research anddevelopment along with other agenciesthat will lead to new scientific understanding and technologies in support ofhomeland security.Consistent with these responsibilities, DHS willbecome a federal center of excellence for cybersecurity and provide a focal point for federaloutreach to state, local, and nongovernmentalorganizations including the private sector,academia, and the public.Critical Priorities for CyberspaceSecurityThe National Strategy to Secure Cyberspacearticulates five national priorities including:I. A National Cyberspace SecurityResponse System;II. A National Cyberspace Security Threatand Vulnerability Reduction Program;III. A National Cyberspace SecurityAwareness and Training Program;IV. Securing Governments’ Cyberspace; andV. National Security and InternationalCyberspace Security Cooperation.The first priority focuses on improving ourresponse to cyber incidents and reducing thepotential damage from such events. The second,third, and fourth priorities aim to reduce threatsfrom, and our vulnerabilities to, cyber attacks.The fifth priority is to prevent cyber attacksthat could impact national security assets and toimprove the international management of andresponse to such attacks.S U M M A R YPriority I: A National CyberspaceSecurity Response SystemRapid identification, information exchange, andremediation can often mitigate the damagecaused by malicious cyberspace activity. Forthose activities to be effective at a national level,the United States needs a partnership betweengovernment and industry to perform analyses,issue warnings, and

Homeland Security, the strategic objectives of this National Strategy to Secure Cyberspace are to: Prevent cyber attacks against America's critical infrastructures; Reduce national vulnerability to cyber attacks; and Minimize damage and recovery time from cyber attacks that do occur. Threat and Vulnerability