NATIONAL TERRORISM ALERT LEVELS
NATIONAL TERRORISM ALERT LEVELS
CONFIDENTIAL
FOREWORD
1. Nigeria's war on insurgency and terrorism has been making
positive strides. All territories hitherto under the control of the
terrorist group Jama'atul ahlis sunna lil da'awati wal jihad known as
Boko Haram have been successfully brought back under Nigerian
control. Citizens have also begun to return to their villages that
have been declared safe for reoccupation. The gains also
achieved by members of the Security Agencies have also put
pressure on Boko Haram, denying them the freedom to carry out
continued attacks on towns and villages. However, while
insurgency can and will be defeated, terrorism is an ideology
which takes virtually a lifetime to defeat.
2. The gains have led to the terrorists adopting desperate
measures to continue to spread terrorism using means such as
suicide bombers. The increase in dismantling the Boko Haram
terrorist is anticipated to result in sleeper cells being formed and
activated. These developments require constant monitoring and
analysis of information. The analysed information would produce
intelligence that would conrm the likelihood and scale of possible
attacks by terrorists. In line with the 'Secure' and 'Identify' principles
of the National Counter Terrorism Strategy (NACTEST), National
Terrorism Alert Levels (NTAL) have been developed.
3. The National Terrorism Alert Levels are meant to guide
Government Agencies on measures to be taken on receipt of
information of a likely terrorist attack. It outlines the alert levels and
the actions to be carried out when a terrorism alert level is
declared. The alert levels can be stepped up or down in response
to changing events. Heads of Ministries, Departments and
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
CONFIDENTIAL
i
Agencies are implored to develop protocols and give their various
Institutions orientation on the NTAL. They are to foster the spirit
behind the NTAL which is to know how to act in various terrorism
situations.
Dated August 2016BABAGANA MOHAMMED MONGUNOMajor General (Rtd)National Security Adviser
CONFIDENTIAL
CONFIDENTIAL
ii
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
NATIONAL TERRORISM ALERT LEVELS
INTRODUCTION
1. The ability of a nation to respond to acts of terrorism
depends on its ability to collate information on security and other
activities that could lead to terrorist attacks. Nigeria's ght against
terrorism has been ongoing with denite gains made by Security
Agencies (SA). As progress is made, the terrorists have resorted to
the cowardly option of attacking soft targets in crowded public
spaces. These attacks have taken the form of suicide bombings
and mass attacks. In the international arena, terrorists have also
adopted the tactics of using marauding gunmen to open re on
civilians in public places or holding civilians hostages in public
buildings. The most recent tactics employed by the terrorists was
the bombing of an airport in Brussels, Belgium on 22 March 2016. This
act not only impacted people on the ground but also airlines that
either had to abort ights mid-air or have their passengers
disembark for fear of other suicide attacks.
2. Intelligence gathering and analysis has led to the
observation of patterns and trends in terrorist activities, which is
utilised to alert authorities and enable them take pre-emptive
measures. It gives authorities the ability to plan and respond to
terrorist attacks within the shortest possible time frame.
Consequently, this has led to the development of a terrorism alert
level system. Various threat level systems exist within SA. However,
there is the need to develop a well-coordinated and holistic
terrorism alert level system that would give various organisations
appropriate national responses. This would enhance the Nations'
ability to prevent and foil attacks while maintaining the ability to
CONFIDENTIAL
CONFIDENTIAL
1
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
react swiftly and effectively to any terrorist attack. It is meant also to
educate citizens on how to respond appropriately to situations,
while keeping them abreast with the security environment.
3. The National Terrorism Alert Level (NTAL) System was
developed with contributions from various agencies. It also
addresses the unique nature of Nigeria's vast land mass and
diverse geopolitical peculiarities. The threat levels are made up of
3 layers, the state, geopolitical and national levels.
AIM 4. This document aims to outline the various NTAL in Nigeria
while outlining appropriate stages of posture and activities to be
implemented by the Security Agencies, MDAs and CSOs.
SITUATION
5. Recent defeats suffered by the Boko Haram Sect have
forced them to resort back to asymmetric attacks on soft targets.
This form of attack unfortunately, due to its nature will be a part of
the national consciousness for the near future. The 15 April 2013
bombings in Boston, Massachusetts and several lone gun attacks
occurred over a decade after the occurrence of the 9/11 attacks
on the World Trade Towers in New York. The impact of these attacks
also have far reaching effects on a nation such that an incident
perceived as isolated in one part of the country could lead to
another incident in another far-ung part. A bomb explosion in a
shopping mall in Port-Harcourt for instance could be considered as
an act of terrorism within Nigeria with attendant consequences
both domestically and internationally.
CONFIDENTIAL
CONFIDENTIAL
2
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
6. It thus behoves on various agencies to know that the
collection, dissemination and sharing of actionable information is a
crucial necessity to forestall the next terrorist attack. These attacks,
if kept at a minimum would signify progress in improving security
against terrorism. Constant analysis should also enable
identication of indicators of future attacks thereby facilitating
appropriate responses. It is also pertinent to mention that with the
increased degradation of ISIS capabilities, the possibility of Africa
being the next haven for terrorism is likely. The prospect of these
terror ists orchestrating another insurgency cannot be
overemphasised and they could carry out or instigate lone attacks
using violent extremists, sympathisers or vulnerable citizens.
THE THREAT
7. The United Nations denes terrorism as the use of military
weapons or forces to generate multiple causality incidents in
which non-combatants and vulnerable civilians are the victims.
The Terrorism Prevention Act 2013 as ammended also denes
terrorism as an act deliberately done to harm or cause damage
with the intent to intimidate, destabilize or negatively inuence a
group of people, organization or government to achieve a
political, religious, economic or social goal. Terrorism has evolved
over time while maintaining its capacity to generate multiple
casualties among citizens. The 9/11 attacks marked a watershed in
the way acts of terrorism were conducted. Since then, terrorism has
developed into a global inter-connected enterprise where the
terrorists annex territories, declare caliphates, export mineral
wealth, deploy unprecedented skil l of campaigns and
propaganda on social media, remotely inuence lone attackers to
carry out attacks on their home soil and form alliances across
CONFIDENTIAL
CONFIDENTIAL
3
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
regions and continents. These trends have facilitated their ability to
carry out brazen attacks in public places, hold hostages, recruit
followers in plain sight and bring large-scale transportation systems
to a halt.
8. The ability of terrorists to send its followers for training
abroad, utilise social media and enlist the help of foreign ghters as
it pledges allegiance to another terror group are clear
manifestations of its evolution. Despite the Nation's success in
regaining territory, freeing of enslaved citizens and reducing Boko
Haram's capability, the Sect is still able to carry out bomb attacks
remotely in areas outside the Northeast. This signies the need for
proper identication of indicators within their activities to enable
pre-emption and disruption thereby preventing them from
actualising their extremist intentions.
9. The collation of information and development of
actionable intelligence and proactive response to this intelligence
is identied as the key means to unlock the terrorist network through
denying them the ability to successfully function.
THREAT LEVEL PROCEDURE
10. The NTAL mean the following: a. Attack is imminent. Critical (Red).b. Attack is highly likely.Severe (Orange).c. Attack is a strong possibility.Substantial (Yellow). d. Attack is possible, but not likely.Moderate (Blue).e. Attack is unlikely. Low (Green).
The authority to issue appropriate threat levels lies with the Ofce of
the National Security Adviser. The NSA will issue appropriate threat
levels based on threat analysis and risk assessment by the Joint
CONFIDENTIAL
4
CONFIDENTIAL
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
Terrorism Analysis Branch (JTAB) whose work is dependent on inputs
from relevant intelligence gathering and SA. When the threat level
is raised to an 'actionable level' i.e. Critical (Red), the Presidential
Command, Control and Communication Centre (PC4) is
convened with the necessary cast list where the intelligence and
subsequent posture changes are discussed and agreed upon.
Threat levels do not have expiry dates, they can change at any
time as different information becomes available to security agents.
11. The 'Life Cycle' from raw Intelligence to posture change is a
5 step process namely:a. Step 1. Intelligence ow from SAs in JTAB. The role of
ONSA will be to ensure JTAB continues to get the
intelligence ows from SSS, military and police.b. Step 2. Analysis and insight from JTAB (or SSS,
Military, police if required). The role of ONSA will be to
ensure JTAB continues to develop its analytical capability. c. Step 3. Recommendation from JTAB to the NSA
(and others) e.g move to 'critical (red)'. The technique and
processes behind making those recommendations is a
specic skill that JTAB will need to continue to develop.d. Step 4. NSA convenes PC4. Once the NSA is satised
that the intelligence points towards action being required
he will convene PC4. e. Step 5. Decision on posture change/actions to be
taken by each relevant MDAs/ agency. This will be a
decision to be taken by each individual MDA/ agency
CONFIDENTIAL
CONFIDENTIAL
5
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
POSTURE
12. The changing nature of the threat would also necessitate
and reect a change in posture in the activities of agencies in
areas as diverse as stepping up vigilance on the streets by the
citizens, to stepping up security at an airport or where necessary
deployment of security personnel in public areas. ONSA will not in
any way micromanage Security Agencies and MDAs. They are
required to develop their own protocols and be adept at it. It must
be noted that the coming into effect of a threat level goes beyond
mere rhetoric as a denite posture change involves a lot of
planning and logistics. As a guide, the expected reaction to each
threat level is contained in succeeding paragraphs.
13. Critical (Red). This is the highest level, meaning a terrorist
attack is imminent and exceptional security measures are
required. The organizations' expected reactions to the alert level
are as follows:
a. Ministry of Defence/Armed Forces. (1) Troops deployment to key areas. (2) Placement of special forces and reserve
troops on standby at the shortest notice to move
(NTM). (3) Man all Key Points (KPs) and Vulnerable
Points (VPs). (4) Erection of checkpoints and roadblocks as
well as cordon and search operations. (5) Aggressive patrols. (6) Maximum state of readiness at the Joint
Operation Centre (JOC). (7) Prepare for Nuclear, Biological and
Chemical (NBC) attacks.
CONFIDENTIAL
6
CONFIDENTIAL
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
b. Police Force. (1) Protection of all KPs and VPs. (2) Intensive patrols. (3) Erection and manning of roadblocks and
check points. (4) Conduct of searches and restriction of
movements. (5) Raids and arrest to obtain additional
information to ll gaps. (6) Deployment of representatives at the JOC.
c. Intelligence Organizations.(1) Continuous surveillance and penetration of
crisis areas to provide real time information &
Intelligence. (2) Exploitation and re-tasking of sources. (3) Continuous analysis of the situation and
dissemination of timely Intelligence.(4) Work out the information operations with
the Ministry of Information (MOI).
d. Ministry of Interior/Para-Military Organisations. (1) Deploy personnel to key areas. (2) Protection of all KPs and VPs. (3) Closure of Land borders (on Instruction). (4) Closure of Air and Sea Ports (on Instruction). (5) Continuous monitoring of the situation and
gathering of information.(6) Deployment of liaison ofcers at the JOC
and the Police Command and Control Centre. (7) Additional support to NEMA.
e. Ministry of Foreign Affairs.(1) Brief foreign diplomats on the situation and
CONFIDENTIAL
CONFIDENTIAL
7
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
advice on action to be taken. (2) Liaise with foreign diplomats for further
support. (3) Provide additional information on the
situation to our embassies abroad.(4) T a s k o w n A m b a s s a d o r s / H i g h
Commissioners on intelligence gathering and
diplomatic operations. (5) Dep loy l ia i son ofcer/Reps at the
Presidential Communication, Command and
Control Centre (PC4).
f. Ministry of Information.(1) Educate the populace on the situation and
what they are expected to do.(2) Provide liaison to the JOC and PC4.(3) Disseminate psychological operations
themes in conjunction with Intelligence and
Security agencies.(4) Constantly update own information ofcers
at consulates abroad. (5) Conduct periodic media briefs. (6) Ensure threat levels are displayed at
airports, train stations and public places.
g. Ministry of Health. (1) Direct all hospitals to operate 24 hours at full
capacity. (2) Designate Hospitals that will receive
emergency cases. (3) Classify hospitals into levels and provide
information to all. (4) Deploy ambulances at des ignated
CONFIDENTIAL
8
CONFIDENTIAL
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
locations in conjunction with NEMA. (5) Liaise with the MOI for public health
responses.
h. NEMA. (1) Establish camps for IDPs. (2) Ensure readiness and standby of response
agencies. (3) Coordinate deployment of ambulances to
designated areas in conjunction with Ministry of
Health.(4) Deploy liaison ofcers to the JOC and PC4
as well as the Police Command and Control
Centre. (5) Coordinate activities of NGO.
i. ONSA.(1) JTAB - CTC will do the following:
(a) Retrieve all available intelligence on
the particular threat from their intelligence
database. (b) Continuous l iaison with other
relevant intelligence agencies from the
affected State, region or sector to get
current intelligence on the threat.(c) Evaluation of gathered intelligence
on the threat scenario to advice on possible
change in threat level. (2) Activate PC4 for strategic coordination of
all response efforts. (3) Continuous monitoring and evaluation of
the situation.
CONFIDENTIAL
CONFIDENTIAL
9
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
14. Severe and Substantial (Orange and Yellow). This means an
attack is highly likely or has a strong possibility of occurrence,
requiring heightened security. The expected reaction is as follows:
a. Ministry of Defence/Armed Forces. (1) Man KPs and VPs. (2) Troops on standby ready to move at short
notice. (3) Prepare to deploy liaison ofcers at the Joint
Operations Centre. (4) Conduct show of force.
b. Police Force. (1) Conduct Patrols. (2) Raiding of red areas to acquire information. (3) Be proactive and maintain Command and
Control Centre for collection of SITREPS. (4) Erection and manning of roadblocks and
check points.
c. Intelligence Organisations.(1) Continuous surveillance and penetration of
crisis area to provide real time information and
Intelligence.(2) Continuous analysis of the situation and
dissemination of timely Intelligence.
d. Ministry of Interior/Para-Military Organisations. (1) Protect KPs and VPs. (2) Step up surveillance of borders, ports, and
national entry and exit points. (3) Set up monitoring rooms and monitor
situation 24 hours. (4) Establish communication with the police
and Military.
CONFIDENTIAL
10
CONFIDENTIAL
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
e. Ministry of Foreign Affairs. (1) Monitoring of situation. (2) Preparation of briefs.
f. Ministry of Information.(1) Educate the populace on the situation and
what they are expected to do.(2) Provide l iaison to the Mi l i tary Joint
Operations Centre and National Command
Centre. (3) Conduct periodic media briefs.
g. Federal Ministry of Health.(1) Alert hospitals and remind them of their
status during emergency. (2) Select and direct hospitals that will operate
24 hours in full capacity.(3) Stockpile drugs for immediate deployment
to hospitals.(4) Assemble and prepare ambulances in
conjunction with NEMA. (5) C o o r d i n a t e t h e d e p l o y m e n t o f
ambu lances at des ignated locat ions in
conjunction with NEMA.
h. NEMA.(1) Coordinate and ensure readiness and
standby of ambulances in conjunction with Federal
Ministry of Health. (2) Ensure all disaster response elements are
ready for possible deployment. (3) Establish camps for IDPs, if necessary. (4) Request for military assistance if required. (5) E n s u r e r e a d i n e s s a n d s t a n d b y o f
CONFIDENTIAL
CONFIDENTIAL
11
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
ambulances to designated areas in conjunction
with the Federal Ministry of Health. (6) Coordinate the activities of all NGOs.
i. ONSA.(1) JTAB CTC will:
(a) Review the current threat level.(b) Provide update on strategic level
information on the expected crisis.(c) Ma in tenance of up to date
intelligence on real or perceived threats to
the Nation.(d) Continuous l iaison with other
intelligence and security agencies.
(2) PC4 ONSA will:(a) Be ready to activate the crises
response coordination cell.(b) Ensure that the National Crises
Response Doctrine is up to date in line with
changing nature of terror threat.(c) Ensure that all MDAs maintain the
required crises response capabilities to
meet their roles as spelt out in the Crises
Response Doctrine.
15. Moderate and Low (Blue and Green). These are states of
affairs in which an attack is possible but the likelihood of
occurrence is very low. The expected reaction is as follows:
a. Ministry of Defence/Armed Forces. (1) Normal routine training and peacetime
deployments.(2) Continuous combat intelligence gathering
CONFIDENTIAL
12
CONFIDENTIAL
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
at the domestic and foreign levels.(3) Routine liaison with intelligence and security
agencies at all levels.(4) Continuous maintenance of required state
of combat readiness as required for assessed
threats.
b. Police Force. (1) Routine Patrols/Surveillance. (2) Protection of all KPs and VPs. (3) Maintain law and order. (4) Continuous intelligence gathering/analysis
in conjunction with JTAB and other intelligence
agencies.
c. I n t e l l i g e n c e O r g a n i s a t i o n s . C o n t i n u o u s
surveillance, information gathering/analysis.
d. Ministry of Interior/Para-Military. (1) Normal routine. (2) Protection of all KPs and VPs. (3) Continuous monitoring of the situation and
gathering of information.
e. Ministry of Foreign Affairs. Continuous monitoring of
the situation in the international domain with emphasis on
intelligence relating to issues of national security interest.
f. Ministry of Information. (1) Continuous media activities to sensitize the
populace on security consciousness and suspicious
behaviour identication and reporting, to be done
in conjunction with NOA and other relevant
agencies. (2) Media awareness campaign against
CONFIDENTIAL
CONFIDENTIAL
13
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
radicalisation and other violent extremism as part of
the overall National CVE Strategy, in conjunction
with relevant Ministries of Education, Internal Affairs,
traditional and religious organisations.
g. Ministry of Health. Continue to evaluate the health
condition and promulgate polices.
h. NEMA. (1) Continuous liaison with rst responders. (2) C o o r d i n a t e t h e d e p l o y m e n t o f
ambulances to designated areas in conjunction
with the Ministry of Health.
i. ONSA.(1) JTAB CTC will ensure:
(a) Ma in tenance of up to date
intelligence on real or perceived threats to
the nation.(b) Continuous l iaison with other
intelligence and security agencies.
(2) PC4 ONSA will:(a) Ensure that the National Crises
Response Doctrine is up to date in line with
changing nature of terror threat.(b) Ensure that all MDAs maintain the
required crises response capabilities to
meet their roles as spelt out in the crises
Response Doctrine.
CONFIDENTIAL
14
CONFIDENTIAL
N A T I O N A L T E R R O R I S M A L E R T L E V E L S
CONCLUSION
16. Terrorism is a global phenomenon with terrorists being
extremely adaptable adversaries. Terrorism normally mutates from
full-blown insurgency to asymmetric warfare with the main targets
being soft targets. This threat is not likely to abate in the near future
but all efforts will be put in place to ensure terrorist attacks are
brought to the barest minimum.
17. The ght against terror must be a whole of government and
society approach, as information no matter how little, gives rise to
intelligence on terrorists’ plans to wreck havoc on the populace. It
is pertinent that all Nigerians develop the habit of being vigilant,
have awesome situation awareness and volunteer information on
strange activities as soon as possible. The Government will continue
to put in place adequate measures to curb these attacks and
ensure a safer nation, unfailingly.
CONFIDENTIAL
CONFIDENTIAL
15
N A T I O N A L T E R R O R I S M A L E R T L E V E L S