NIST Special Publication 800-39

Managing Information
Security Risk
Organization, Mission, and Information
System View

JOINT TASK FORCE
TRANSFORMATION INITIATIVEINFORMATIONSECURITY

Computer Security Division
Information Technology Laboratory
National Institute of Standards and Technology
Gaithersburg, MD 20899-8930

March 2011

U.S. Department of Commerce
Gary Locke, Secretary

National Institute of Standards and Technology
Patrick D. Gallagher, Director

Special Publication 800-39

Managing Information Security Risk
Organization, Mission, and Information System View________________________________________________________________________________________________

Reports on Computer Systems Technology
The Information Technology Laboratory (ITL) at the National Institute of Standards andTechnology (NIST) promotes the U.S. economy and public welfare by providing technicalleadership for the nation’s measurement and standards infrastructure. ITL develops tests, test
methods, reference data, proof of concept implementations, and technical analyses to advance thedevelopment and productive use of information technology. ITL’s responsibilities include thedevelopment of management, administrative, technical, and physical standards and guidelines forthe cost-effective security and privacy of other than national security-related information infederal information systems. The Special Publication 800-series reports on ITL’s research,guidelines, and outreach efforts in information system security, and its collaborative activities
with industry, government, and academic organizations.

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Organization, Mission, and Information System View________________________________________________________________________________________________

Authority
This publication has been developed by NIST to further its statutory responsibilities under theFederal Information Security Management Act (FISMA), Public Law (P.L.) 107-347. NIST is
responsible for developing information security standards and guidelines, including minimum
requirements for federal information systems, but such standards and guidelines shall not apply tonational security systems without the express approval of appropriate federal officials exercising
policy authority over such systems. This guideline is consistent with the requirements of the
Office of Management and Budget (OMB) Circular A-130, Section 8b(3), Securing Agency
Information Systems, as analyzed in Circular A-130, Appendix IV: Analysis of Key Sections.
Supplemental information is provided in Circular A-130, Appendix III, Security of Federal
Automated Information Resources.
Nothing in this publication should be taken to contradict the standards and guidelines mademandatory and binding on federal agencies by the Secretary of Commerce under statutory
authority. Nor should these guidelines be interpreted as altering or superseding the existing
authorities of the Secretary of Commerce, Director of the OMB, or any other federal official.
This publication may be used by nongovernmental organizations on a voluntary basis and is not
subject to copyright in the United States. Attribution would, however, be appreciated by NIST.
NIST Special Publication 800-39, 88 pages(March 2011)

Certain commercial entities, equipment, or materials may be identified in this document in order todescribe an experimental procedure or concept adequately. Such identification is not intended to imply
recommendation or endorsement by NIST, nor is it intended to imply that the entities, materials, or
equipment are necessarily the best available for the purpose.
There may be references in this publication to other publications currently under development by NIST
in accordance with its assigned statutory responsibilities. The information in this publication, including
concepts and methodologies, may be used by federal agencies even before the completion of suchcompanion publications. Thus, until each publication is completed, current requirements, guidelines,
and procedures, where they exist, remain operative. For planning and transition purposes, federal
agencies may wish to closely follow the development of these new publications by NIST.
Organizations are encouraged to review all draft publications during public comment periods andprovide feedback to NIST. All NIST publications, other than the ones noted above, are available at
http://csrc.nist.gov/publications.

National Institute of Standards and Technology
Attn: Computer Security Division, Information Technology Laboratory
100 Bureau Drive (Mail Stop 8930) Gaithersburg, MD 20899-8930
Electronic mail: sec-cert@nist.gov

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Organization, Mission, and Information System View________________________________________________________________________________________________

Compliance with NIST Standards and Guidelines
In accordance with the provisions of FISMA,1 the Secretary of Commerce shall, on the basis ofstandards and guidelines developed by NIST, prescribe standards and guidelines pertaining tofederal information systems. The Secretary shall make standards compulsory and binding to theextent determined necessary by the Secretary to improve the efficiency of operation or security offederal information systems. Standards prescribed shall include information security standards
that provide minimum information security requirements and are otherwise necessary to improve
the security of federal information and information systems.
•

Federal Information Processing Standards (FIPS) are approved by the Secretary ofCommerce and issued by NIST in accordance with FISMA. FIPS are compulsory andbinding for federal agencies.2 FISMA requires that federal agencies comply with thesestandards, and therefore, agencies may not waive their use.

•

Special Publications (SPs) are developed and issued by NIST as recommendations andguidance documents. For other than national security programs and systems, federal
agencies must follow those NIST Special Publications mandated in a Federal Information
Processing Standard. FIPS 200 mandates the use of Special Publication 800-53, as
amended. In addition, OMB policies (including OMB Reporting Instructions for FISMA
and Agency Privacy Management) state that for other than national security programs
and systems, federal agencies must follow certain specific NIST Special Publications.3•

Other security-related publications, including interagency reports (NISTIRs) and ITL
Bulletins, provide technical and other information about NIST's activities. Thesepublications are mandatory only when specified by OMB.

•

Compliance schedules for NIST security standards and guidelines are established by
OMB in policies, directives, or memoranda (e.g., annual FISMA Reporting Guidance).4

1

The E-Government Act (P.L. 107-347) recognizes the importance of information security to the economic andnational security interests of the United States. Title III of the E-Government Act, entitled the Federal Information
Security Management Act (FISMA), emphasizes the need for organizations to develop, document, and implement anorganization-wide program to provide security for the information systems that support its operations and assets.
2

The term agency is used in this publication in lieu of the more general term organization only in those circumstanceswhere its usage is directly related to other source documents such as federal legislation or policy.

3
While federal agencies are required to follow certain specific NIST Special Publications in accordance with OMB
policy, there is flexibility in how agencies apply the guidance. Federal agencies apply the security concepts andprinciples articulated in the NIST Special Publications in accordance with and in the context of the agency’s missions,business functions, and environment of operation. Consequently, the application of NIST guidance by federal agencies
can result in different security solutions that are equally acceptable, compliant with the guidance, and meet the OMB
definition of adequate security for federal information systems. Given the high priority of information sharing andtransparency within the federal government, agencies also consider reciprocity in developing their information security
solutions. When assessing federal agency compliance with NIST Special Publications, Inspectors General, evaluators,
auditors, and assessors consider the intent of the security concepts and principles articulated within the specificguidance document and how the agency applied the guidance in the context of its mission/business responsibilities,
operational environment, and unique organizational conditions.
4
Unless otherwise stated, all references to NIST publications in this document (i.e., Federal Information Processing
Standards and Special Publications) are to the most recent version of the publication.

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Acknowledgements
This publication was developed by the Joint Task Force Transformation Initiative Interagency
Working Group with representatives from the Civil, Defense, and Intelligence Communities in an
ongoing effort to produce a unified information security framework for the federal government.
The National Institute of Standards and Technology wishes to acknowledge and thank the seniorleaders from the Departments of Commerce and Defense, the Office of the Director of National
Intelligence, the Committee on National Security Systems, and the members of the interagency
technical working group whose dedicated efforts contributed significantly to the publication. The
senior leaders, interagency working group members, and their organizational affiliations include:
U.S. Department of Defense

Office of the Director of National Intelligence

Teresa M. Takai
Assistant Secretary of Defense for Networks andInformation Integration/DoD Chief Information
Officer (Acting)

Adolpho Tarasiuk Jr.
Assistant Director of National Intelligence andIntelligence Community Chief Information
OfficerGus Guissanie
Deputy Assistant Secretary of Defense (Acting)Charlene P. Leubecker
Deputy Intelligence Community Chief
Information Officer

Dominic Cussatt
Senior Policy Advisor

Mark J. Morrison
Director, Intelligence Community Information
Assurance

Barbara Fleming
Senior Policy Advisor

Roger Caslow
Chief, Risk Management and Information
Security Programs Division

National Institute of Standards and Technology

Committee on National Security Systems

Cita M. Furlani
Director, Information Technology Laboratory

Teresa M. Takai
Acting Chair, CNSS

William C. Barker
Cyber Security Advisor, Information Technology Laboratory

Eustace D. KingCNSS Subcommittee Co-Chair

Donna Dodson
Chief, Computer Security DivisionPeter Gouldmann
CNSS Subcommittee Co-Chair

Ron Ross
FISMA Implementation Project Leader

Lance Dubsky
CNSS Subcommittee Co-Chair

Joint Task Force Transformation Initiative Interagency Working Group
Ron Ross
NIST, JTF Leader

Gary StoneburnerJohns Hopkins APL

Jennifer Fabius-Greene
The MITRE Corporation

Kelley Dempsey
NIST

Deborah Bodeau
The MITRE Corporation

Cheri Caddy
Intelligence Community

Peter Gouldmann
Department of State

Arnold Johnson
NIST

Peter Williams
Booz Allen Hamilton

Karen Quigg
The MITRE Corporation

Richard Graubart
The MITRE Corporation

Christian Enloe
NIST

In addition to the above acknowledgments, a special note of thanks goes to Peggy Himes andElizabeth Lennon for their superb technical editing and administrative support and to Bennett
Hodge, Cassandra Kelly, Marshall Abrams, Marianne Swanson, Patricia Toth, Kevin Stine, andMatt Scholl for their valuable insights and contributions. The authors also gratefully acknowledge
and appreciate the significant contributions from individuals and organizations in the public andprivate sectors, both nationally and internationally, whose thoughtful and constructive comments
improved the overall quality, thoroughness, and usefulness of this publication.

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Special Publication 800-39

Managing Information Security Risk
Organization, Mission, and Information System View________________________________________________________________________________________________DEVELOPING COMMON INFORMATION SECURITY FOUNDATIONSCOLLABORATION AMONG PUBLIC AND PRIVATE SECTOR ENTITIESIn developing standards and guidelines required by FISMA, NIST consults with other federal agencies
and offices as well as the private sector to improve information security, avoid unnecessary and costly
duplication of effort, and ensure that NIST publications are complementary with the standards andguidelines employed for the protection of national security systems. In addition to its comprehensive
public review and vetting process, NIST is collaborating with the Office of the Director of National
Intelligence (ODNI), the Department of Defense (DoD), and the Committee on National Security
Systems (CNSS) to establish a common foundation for information security across the federal
government. A common foundation for information security will provide the Intelligence, Defense, andCivil sectors of the federal government and their contractors, more uniform and consistent ways tomanage the risk to organizational operations and assets, individuals, other organizations, and the
Nation that results from the operation and use of information systems. A common foundation for
information security will also provide a strong basis for reciprocal acceptance of security assessment
results and facilitate information sharing. NIST is also working with public and private sector entities
to establish mappings and relationships between the security standards and guidelines developed by
NIST and the International Organization for Standardization (ISO) and International ElectrotechnicalCommission (IEC).

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Special Publication 800-39

Managing Information Security Risk
Organization, Mission, and Information System View________________________________________________________________________________________________CAUTIONARY NOTEINTENDED SCOPE AND USE OF THIS PUBLICATION

The guidance provided in this publication is intended to address only the management of information
security-related risk derived from or associated with the operation and use of information systems or
the environments in which those systems operate. The guidance is not intended to replace or subsume
other risk-related activities, programs, processes, or approaches that organizations have implemented
or intend to implement addressing areas of risk management covered by other legislation, directives,
policies, programmatic initiatives, or mission/business requirements. Rather, the information security
risk management guidance described herein is complementary to and should be used as part of a morecomprehensive Enterprise Risk Management (ERM) program.

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Table of Contents
CHAPTER ONE INTRODUCTION ............................................................................................ 1

1.1 PURPOSE AND APPLICABILITY .................................................................................................. 3
1.2 TARGET AUDIENCE.................................................................................................................. 3
1.3 RELATED PUBLICATIONS .......................................................................................................... 4
1.4 ORGANIZATION OF THIS SPECIAL PUBLICATION.......................................................................... 5
CHAPTER TWO THE FUNDAMENTALS ................................................................................... 6

2.1 COMPONENTS OF RISK MANAGEMENT ...................................................................................... 6
2.2 MULTITIERED RISK MANAGEMENT ............................................................................................. 9
2.3 TIER ONE—ORGANIZATION VIEW............................................................................................ 11
2.4 TIER TWO—MISSION/BUSINESS PROCESS VIEW ...................................................................... 17
2.5 TIER THREE—INFORMATION SYSTEMS VIEW ........................................................................... 21
2.6 TRUST AND TRUSTWORTHINESS ............................................................................................ 23
2.7 ORGANIZATIONAL CULTURE ................................................................................................... 28
2.8 RELATIONSHIP AMONG KEY RISK CONCEPTS ........................................................................... 29
CHAPTER THREE THE PROCESS........................................................................................ 32

3.1 FRAMING RISK ...................................................................................................................... 33
3.2 ASSESSING RISK ................................................................................................................... 37
3.3 RESPONDING TO RISK ........................................................................................................... 41
3.4 MONITORING RISK ................................................................................................................. 45
APPENDIX A REFERENCES.............................................................................................. A-1
APPENDIX B GLOSSARY ................................................................................................. B-1
APPENDIX C ACRONYMS ................................................................................................. C-1
APPENDIX D ROLES AND RESPONSIBILITIES ..................................................................... D-1
APPENDIX E RISK MANAGEMENT PROCESS TASKS ........................................................... E-1
APPENDIX F GOVERNANCE MODELS .................................................................................F-1
APPENDIX G TRUST MODELS ........................................................................................... G-1
APPENDIX H RISK RESPONSE STRATEGIES ...................................................................... H-1

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Prologue“... Through the process of risk management, leaders must consider risk to U.S. interests fromadversaries using cyberspace to their advantage and from our own efforts to employ the global
nature of cyberspace to achieve objectives in military, intelligence, and business operations...”“... For operational plans development, the combination of threats, vulnerabilities, and impacts
must be evaluated in order to identify important trends and decide where effort should be applied
to eliminate or reduce threat capabilities; eliminate or reduce vulnerabilities; and assess,coordinate, and deconflict all cyberspace operations...”“... Leaders at all levels are accountable for ensuring readiness and security to the same degree
as in any other domain...”-- THE NATIONAL STRATEGY FOR CYBERSPACE OPERATIONSOFFICE OF THE CHAIRMAN, JOINT CHIEFS OF STAFF, U.S. DEPARTMENT OF DEFENSE

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Organization, Mission, and Information System View________________________________________________________________________________________________

CHAPTER ONE

INTRODUCTION
THE NEED FOR INTEGRATED ORGANIZATION-WIDE RISK MANAGEMENT

I

nformation technology is widely recognized as the engine that drives the U.S. economy,
giving industry a competitive advantage in global markets, enabling the federal government
to provide better services to its citizens, and facilitating greater productivity as a nation.
Organizations5 in the public and private sectors depend on technology-intensive information
systems6 to successfully carry out their missions and business functions. Information systems can
include diverse entities ranging from high-end supercomputers, workstations, personal computers,
cellular telephones, and personal digital assistants to very specialized systems (e.g., weaponssystems, telecommunications systems, industrial/process control systems, and environmental
control systems). Information systems are subject to serious threats that can have adverse effects
on organizational operations (i.e., missions, functions, image, or reputation), organizational
assets, individuals, other organizations, and the Nation by exploiting both known and unknown
vulnerabilities to compromise the confidentiality, integrity, or availability of the information
being processed, stored, or transmitted by those systems. Threats to information and information
systems can include purposeful attacks, environmental disruptions, and human/machine errors
and result in great harm to the national and economic security interests of the United States.
Therefore, it is imperative that leaders and managers at all levels understand their responsibilities
and are held accountable for managing information security risk—that is, the risk associated withthe operation and use of information systems that support the missions and business functions of
their organizations.
Organizational risk can include many types of risk (e.g., program management risk, investment
risk, budgetary risk, legal liability risk, safety risk, inventory risk, supply chain risk, and securityrisk). Security risk related to the operation and use of information systems is just one of many
components of organizational risk that senior leaders/executives address as part of their ongoingrisk management responsibilities. Effective risk management requires that organizations operate
in highly complex, interconnected environments using state-of-the-art and legacy information
systems—systems that organizations depend on to accomplish their missions and to conduct
important business-related functions. Leaders must recognize that explicit, well-informed riskbased decisions are necessary in order to balance the benefits gained from the operation and useof these information systems with the risk of the same systems being vehicles through which
purposeful attacks, environmental disruptions, or human errors cause mission or business failure.
Managing information security risk, like risk management in general, is not an exact science. It
brings together the best collective judgments of individuals and groups within organizations
responsible for strategic planning, oversight, management, and day-to-day operations—providing
both the necessary and sufficient risk response measures to adequately protect the missions andbusiness functions of those organizations.

5

The term organization describes an entity of any size, complexity, or positioning within an organizational structure(e.g., a federal agency or, as appropriate, any of its operational elements) that is charged with carrying out assigned
mission/business processes and that uses information systems in support of those processes.
6

An information system is a discrete set of information resources organized for the collection, processing, maintenance,
use, sharing, dissemination, or disposition of information. In the context of this publication, the definition includes theenvironment in which the information system operates (i.e., people, processes, technologies, facilities, and cyberspace).

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Organization, Mission, and Information System View________________________________________________________________________________________________

The complex relationships among missions, mission/business processes, and the information
systems supporting those missions/processes require an integrated, organization-wide view for
managing risk.7 Unless otherwise stated, references to risk in this publication refer to information
security risk from the operation and use of organizational information systems including theprocesses, procedures, and structures within organizations that influence or affect the design,development, implementation, and ongoing operation of those systems. The role of information
security in managing risk from the operation and use of information systems is also critical to thesuccess of organizations in achieving their strategic goals and objectives. Historically, seniorleaders/executives have had a very narrow view of information security either as a technicalmatter or in a stovepipe that was independent of organizational risk and the traditional
management and life cycle processes. This extremely limited perspective often resulted ininadequate consideration of how information security risk, like other organizational risks, affects
the likelihood of organizations successfully carrying out their missions and business functions.
This publication places information security into the broader organizational context of achieving
mission/business success. The objective is to:•

Ensure that senior leaders/executives recognize the importance of managing information
security risk and establish appropriate governance structures for managing such risk;•

Ensure that the organization’s risk management process is being effectively conducted acrossthe three tiers of organization, mission/business processes, and information systems;•

Foster an organizational climate where information security risk is considered within thecontext of the design of mission/business processes, the definition of an overarchingenterprise architecture, and system development life cycle processes; and•Help individuals with responsibilities for information system implementation or operation
better understand how information security risk associated with their systems translates into
organization-wide risk that may ultimately affect the mission/business success.

To successfully execute organizational missions and business functions with information systemdependent processes, senior leaders/executives must be committed to making risk management a
fundamental mission/business requirement. This top-level, executive commitment ensures thatsufficient resources are available to develop and implement effective, organization-wide risk
management programs. Understanding and addressing risk is a strategic capability and an enablerof missions and business functions across organizations. Effectively managing information
security risk organization-wide requires the following key elements:•

Assignment of risk management responsibilities to senior leaders/executives;•

Ongoing recognition and understanding by senior leaders/executives of the information
security risks to organizational operations and assets, individuals, other organizations, and the
Nation arising from the operation and use of information systems;•

Establishing the organizational tolerance for risk and communicating the risk tolerance
throughout the organization including guidance on how risk tolerance impacts ongoing
decision-making activities;8 and•Accountability by senior leaders/executives for their risk management decisions and for the
implementation of effective, organization-wide risk management programs.

7

The aggregation of different types of risk across the organization is beyond the scope of this publication.

8

The evaluation of residual risk (which changes over time) to determine acceptable risk is dependent on the threshold
set by organizational risk tolerance.

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1.1 PURPOSE AND APPLICABILITYNIST Special Publication 800-39 is the flagship document in the series of information security
standards and guidelines developed by NIST in response to FISMA. The purpose of Special
Publication 800-39 is to provide guidance for an integrated, organization-wide program for
managing information security risk to organizational operations (i.e., mission, functions, image,and reputation), organizational assets, individuals, other organizations, and the Nation resulting
from the operation and use of federal information systems. Special Publication 800-39 provides a
structured, yet flexible approach for managing risk that is intentionally broad-based, with thespecific details of assessing, responding to, and monitoring risk on an ongoing basis provided byother supporting NIST security standards and guidelines. The guidance provided in thispublication is not intended to replace or subsume other risk-related activities, programs,
processes, or approaches that organizations have implemented or intend to implement addressing
areas of risk management covered by other legislation, directives, policies, programmatic
initiatives, or mission/business requirements. Rather, the risk management guidance describedherein is complementary to and should be used as part of a more comprehensive Enterprise Risk
Management (ERM) program.
This publication satisfies the requirements of FISMA and meets or exceeds the information
security requirements established for executive agencies9 by the Office of Management andBudget (OMB) in Circular A-130, Appendix III, Security of Federal Automated Information
Resources. The guidelines in this publication are applicable to all federal information systems
other than those systems designated as national security systems as defined in 44 U.S.C., Section
3542. The guidelines have been broadly developed from a technical perspective to complement
similar guidelines for national security systems and may be used for such systems with theapproval of appropriate federal officials exercising policy authority over such systems. State,
local, and tribal governments, as well as private sector organizations are encouraged to consider
using these guidelines, as appropriate.

1.2 TARGET AUDIENCEThis publication is intended to serve a diverse group of risk management professionals including:•Individuals with oversight responsibilities for risk management (e.g., heads of agencies, chief
executive officers, chief operating officers);•

Individuals with responsibilities for conducting organizational missions/business functions(e.g., mission/business owners, information owners/stewards, authorizing officials);•

Individuals with responsibilities for acquiring information technology products, services, orinformation systems (e.g., acquisition officials, procurement officers, contracting officers);•

Individuals with information security oversight, management, and operational responsibilities(e.g., chief information officers, senior information security officers,10 information security
managers, information system owners, common control providers);

9

An executive agency is: (i) an executive department specified in 5 U.S.C., Section 101; (ii) a military department
specified in 5 U.S.C., Section 102; (iii) an independent establishment as defined in 5 U.S.C., Section 104(1); and (iv) awholly owned government corporation fully subject to the provisions of 31 U.S.C., Chapter 91. In this publication, theterm executive agency is synonymous with the term federal agency.
10
At the agency level, this position is known as the Senior Agency Information Security Officer. Organizations may
also refer to this position as the Chief Information Security Officer.

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Individuals with information system/security design, development and implementation
responsibilities (e.g., program managers, enterprise architects, information security architects,
information system/security engineers; information systems integrators); and•Individuals with information security assessment and monitoring responsibilities (e.g., systemevaluators, penetration testers, security control assessors, independent verifiers/validators,
inspectors general, auditors).

1.3 RELATED PUBLICATIONS
The risk management approach described in this publication is supported by a series of security
standards and guidelines necessary for managing information security risk. In particular, theSpecial Publications developed by the Joint Task Force Transformation Initiative11 supporting theunified information security framework for the federal government include:•

Special Publication 800-37, Guide for Applying the Risk Management Framework to Federal
Information Systems: A Security Life Cycle Approach;•Special Publication 800-53, Recommended Security Controls for Federal Information
Systems and Organizations;•

Special Publication 800-53A, Guide for Assessing the Security Controls in Federal
Information Systems and Organizations; and•Draft Special Publication 800-30, Guide for Conducting Risk Assessments.12

In addition to the Joint Task Force publications listed above, the International Organization forStandardization (ISO) and the International Electrotechnical Commission (IEC) publish standards
for risk management and information security including:•

ISO/IEC 31000, Risk management – Principles and guidelines;•

ISO/IEC 31010, Risk management – Risk assessment techniques;•

ISO/IEC 27001, Information technology – Security techniques – Information security
management systems – Requirements; and•ISO/IEC 27005, Information technology – Security techniques – Information security risk
management systems.

NIST’s mission includes harmonization of international and national standards where appropriate.
The concepts and principles contained in this publication are intended to implement for federal
information systems and organizations, an information security management system and a risk
management process similar to those described in ISO/IEC standards. This reduces the burden on
organizations that must conform to both ISO/IEC standards and NIST standards and guidance.

11
An overview of each Joint Task Force Transformation Initiative publication, similar to an Executive Summary, canbe obtained through appropriate NIST ITL Security Bulletins at http://csrc.nist.gov.
12

Special Publication 800-39 supersedes the original Special Publication 800-30 as the source for guidance on risk
management. Special Publication 800-30 is being revised to provide guidance on risk assessment as a supporting
document to Special Publication 800-39.

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1.4 ORGANIZATION OF THIS SPECIAL PUBLICATIONThe remainder of this special publication is organized as follows:•

Chapter Two describes: (i) the components of risk management; (ii) the multitiered risk
management approach; (iii) risk management at the organization level (Tier 1); (iv) risk
management at the mission/business process level (Tier 2); (v) risk management at the
information system level (Tier 3); (vi) risk related to trust and trustworthiness; (vii) the
effects of organizational culture on risk; and (viii) relationships among key risk management
concepts.

•

Chapter Three describes a life cycle-based process for managing information security risk
including: (i) a general overview of the risk management process; (ii) how organizations
establish the context for risk-based decisions; (iii) how organizations assess risk; (iv) how
organizations respond to risk; and (v) how organizations monitor risk over time.

•

Supporting appendices provide additional risk management information including: (i)general references; (ii) definitions and terms; (iii) acronyms; (iv) roles and responsibilities;(v) risk management process tasks; (vi) governance models; (vii) trust models; and (viii) risk
response strategies.

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CHAPTER TWO

THE FUNDAMENTALSBASIC CONCEPTS ASSOCIATED WITH RISK MANAGEMENTT

his chapter describes the fundamental concepts associated with managing information
security risk across an organization including: (i) the components of risk management; (ii)the multitiered risk management approach; (iii) risk management at Tier 1 (organizationlevel); (iv) risk management at Tier 2 (mission/business process level); (v) risk management at
Tier 3 (information system level); (vi) risk related to trust and trustworthiness; (vii) the effects oforganizational culture on risk; and (viii) the relationships among key risk management concepts.

2.1 COMPONENTS OF RISK MANAGEMENTManaging risk is a complex, multifaceted activity that requires the involvement of the entire
organization—from senior leaders/executives providing the strategic vision and top-level goals
and objectives for the organization; to mid-level leaders planning, executing, and managing
projects; to individuals on the front lines operating the information systems supporting theorganization’s missions/business functions. Risk management is a comprehensive process that
requires organizations to: (i) frame risk (i.e., establish the context for risk-based decisions); (ii)assess risk; (iii) respond to risk once determined; and (iv) monitor risk on an ongoing basis using
effective organizational communications and a feedback loop for continuous improvement in therisk-related activities of organizations. Risk management is carried out as a holistic, organizationwide activity that addresses risk from the strategic level to the tactical level, ensuring that riskbased decision making is integrated into every aspect of the organization.13 The following
sections briefly describe each of the four risk management components.
The first component of risk management addresses how organizations frame risk or establish arisk context—that is, describing the environment in which risk-based decisions are made. The
purpose of the risk framing component is to produce a risk management strategy that addresses
how organizations intend to assess risk, respond to risk, and monitor risk—making explicit andtransparent the risk perceptions that organizations routinely use in making both investment andoperational decisions. The risk frame establishes a foundation for managing risk and delineates
the boundaries for risk-based decisions within organizations. Establishing a realistic and crediblerisk frame requires that organizations identify: (i) risk assumptions (e.g., assumptions about thethreats, vulnerabilities, consequences/impact, and likelihood of occurrence that affect how risk isassessed, responded to, and monitored over time); (ii) risk constraints (e.g., constraints on the risk
assessment, response, and monitoring alternatives under consideration); (iii) risk tolerance (e.g.,levels of risk, types of risk, and degree of risk uncertainty that are acceptable); and (iv) priorities
and trade-offs (e.g., the relative importance of missions/business functions, trade-offs among
different types of risk that organizations face, time frames in which organizations must address
risk, and any factors of uncertainty that organizations consider in risk responses). The risk
framing component and the associated risk management strategy also include any strategic-level
decisions on how risk to organizational operations and assets, individuals, other organizations,and the Nation, is to be managed by senior leaders/executives.

13
Integrated, enterprise-wide risk management includes, for example, consideration of: (i) the strategic goals/objectivesof organizations; (ii) organizational missions/business functions prioritized as needed; (iii) mission/business processes;(iv) enterprise and information security architectures; and (v) system development life cycle processes.

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Organization, Mission, and Information System View________________________________________________________________________________________________The second component of risk management addresses how organizations assess risk within thecontext of the organizational risk frame. The purpose of the risk assessment component is to
identify: (i) threats to organizations (i.e., operations, assets, or individuals) or threats directed
through organizations against other organizations or the Nation; (ii) vulnerabilities internal andexternal to organizations;14 (iii) the harm (i.e., consequences/impact) to organizations that may
occur given the potential for threats exploiting vulnerabilities; and (iv) the likelihood that harm
will occur. The end result is a determination of risk (i.e., the degree of harm and likelihood ofharm occurring). To support the risk assessment component, organizations identify: (i) the tools,
techniques, and methodologies that are used to assess risk; (ii) the assumptions related to risk
assessments; (iii) the constraints that may affect risk assessments; (iv) roles and responsibilities;(v) how risk assessment information is collected, processed, and communicated throughout
organizations; (vi) how risk assessments are conducted within organizations; (vii) the frequencyof risk assessments; and (viii) how threat information is obtained (i.e., sources and methods).
The third component of risk management addresses how organizations respond to risk once thatrisk is determined based on the results of risk assessments. The purpose of the risk responsecomponent is to provide a consistent, organization-wide, response to risk in accordance with theorganizational risk frame by: (i) developing alternative courses of action for responding to risk;(ii) evaluating the alternative courses of action; (iii) determining appropriate courses of action
consistent with organizational risk tolerance; and (iv) implementing risk responses based on
selected courses of action. To support the risk response component, organizations describe thetypes of risk responses that can be implemented (i.e., accepting, avoiding, mitigating, sharing, ortransferring risk). Organizations also identify the tools, techniques, and methodologies used todevelop courses of action for responding to risk, how courses of action are evaluated, and how
risk responses are communicated across organizations and as appropriate, to external entities(e.g., external service providers, supply chain partners).15
The fourth component of risk management addresses how organizations monitor risk over time.
The purpose of the risk monitoring component is to: (i) verify that planned risk response
measures are implemented and information security requirements derived from/traceable toorganizational missions/business functions, federal legislation, directives, regulations, policies,
and standards, and guidelines, are satisfied; (ii) determine the ongoing effectiveness of risk
response measures following implementation; and (iii) identify risk-impacting changes toorganizational information systems and the environments in which the systems operate.16 To
support the risk monitoring component, organizations describe how compliance is verified andhow the ongoing effectiveness of risk responses is determined (e.g., the types of tools, techniques,
and methodologies used to determine the sufficiency/correctness of risk responses and if risk
mitigation measures are implemented correctly, operating as intended, and producing the desired
effect with regard to reducing risk). In addition, organizations describe how changes that may
impact the ongoing effectiveness of risk responses are monitored.

14

Organizational vulnerabilities are not confined to information systems but can include, for example, vulnerabilities ingovernance structures, mission/business processes, enterprise architecture, information security architecture, facilities,
equipment, system development life cycle processes, supply chain activities, and external service providers.
15

Supply chain risk management guidance is provided in NIST Interagency Report 7622.

16

Environments of operation include, but are not limited to: the threat space; vulnerabilities; missions/business
functions; mission/business processes; enterprise and information security architectures; information technologies;
personnel; facilities; supply chain relationships; organizational governance/culture; procurement/acquisition processes;organizational policies/procedures; organizational assumptions, constraints, risk tolerance, and priorities/trade-offs).

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consider external risk relationships, as appropriate. Organizations identify external entities withwhich there is an actual or potential risk relationship (i.e., organizations which could impose risks
on, transfer risks to, or communicate risks to other organizations, as well as those to whichorganizations could impose, transfer, or communicate risks). External risk relationships include,for example, suppliers, customers or served populations, mission/business partners, and/or service
providers. For organizations dealing with advanced persistent threats (i.e., a long-term pattern oftargeted, sophisticated attacks) the risk posed by external partners (especially suppliers in the
supply chain) may become more pronounced. Organizations establish practices for sharing riskrelated information (e.g., threat and vulnerability information) with external entities, including
those with which the organizations have a risk relationship as well as those which could supply or
receive risk-related information (e.g., Information Sharing and Analysis Centers [ISAC],
Computer Emergency Response Teams [CERT]).
Figure 1 illustrates the risk management process and the information and communications flows
among components. The black arrows represent the primary flows within the risk management
process with risk framing informing all the sequential step-by-step set of activities moving fromrisk assessment to risk response to risk monitoring. For example, one of the primary outputs fromthe risk framing component is a description of the sources and methods that organizations use inacquiring threat information (e.g., open source, classified intelligence community reports). The
output regarding threat information is a primary input to the risk assessment component and iscommunicated accordingly to that component. Another example is illustrated in the primary
output from the risk assessment component—that is, a determination of risk. The output from therisk assessment component is communicated to the risk response component and is received as a
primary input for that component. Another primary input to the risk response component is an
output from the risk framing component—the risk management strategy that defines how theorganization should respond to risk. Together, these inputs, along with any additional inputs, areused by decision makers when selecting among potential courses of action for risk responses.

ASSESS

Information andCommunications Flows

Information andCommunications FlowsFRAME

MONITORRESPOND

FIGURE 1: RISK MANAGEMENT PROCESSThe bidirectional nature of the arrows indicates that the information and communication flows
among the risk management components as well as the execution order of the components, may

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be flexible and respond to the dynamic nature of the risk management process. For example, newlegislation, directives, or policies may require that organizations implement additional risk
response measures immediately. This information is communicated directly from the risk framing
component to the risk response component where specific activities are carried out to achievecompliance with the new legislation, directives, or policies, illustrating the very dynamic andflexible nature of information as it moves through the risk management process. Chapter Three
provides a complete description of the organization-wide risk management process including
specifications for inputs/preconditions, activities, and outputs/post conditions.

2.2 MULTITIERED RISK MANAGEMENT
To integrate the risk management process throughout the organization, a three-tiered approach is
employed that addresses risk at the: (i) organization level; (ii) mission/business process level; and(iii) information system level. The risk management process is carried out seamlessly across thethree tiers with the overall objective of continuous improvement in the organization’s risk-related
activities and effective inter-tier and intra-tier communication among all stakeholders having ashared interest in the mission/business success of the organization. Figure 2 illustrates the threetiered approach to risk management along with some of its key characteristics.
STRATEGIC RISK
- Traceability and Transparency of
Risk-Based Decisions- Organization-Wide
Risk Awareness

TIER 1ORGANIZATION- Inter- Tier and Intra-Tier
Communications- Feedback Loop forContinuous Improvement

TIER 2MISSION / BUSINESS PROCESSESTIER 3
INFORMATION SYSTEMSTACTICAL RISKFIGURE 2: MULTITIERED ORGANIZATION-WIDE RISK MANAGEMENT

Tier 1 addresses risk from an organizational perspective. Tier 1 implements the first componentof risk management (i.e., risk framing), providing the context for all risk management activities
carried out by organizations. Tier 1 risk management activities directly affect the activities carriedout at Tiers 2 and 3. For example, the missions and business functions defined at Tier 1 influence
the design and development of the mission/business processes created at Tier 2 to carry out thosemissions/business functions. Tier 1 provides a prioritization of missions/business functions which
in turn drives investment strategies and funding decisions, thus, affecting the development ofenterprise architecture (including embedded information security architecture) at Tier 2 and theallocations and deployment of management, operational, and technical security controls at Tier 3.

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Other examples of Tier 1 activities that affect Tier 2 and Tier 3 activities include the selection ofcommon controls, the provision of guidance from the risk executive (function)17 to authorizing
officials, and the establishment of the order of recovery for information systems supporting
critical missions and business operations. Section 2.3 provides a more detailed description of thespecific activities associated with Tier 1.
Tier 2 addresses risk from a mission/business process perspective and is informed by the risk
context, risk decisions, and risk activities at Tier 1. Tier 2 risk management activities include: (i)defining the mission/business processes needed to support the missions and business functions oforganizations; (ii) prioritizing the mission/business processes with respect to the strategic goals
and objectives of organizations; (iii) defining the types of information needed to successfully
execute the mission/business processes, the criticality/sensitivity of the information, and theinformation flows both internal and external to organizations; (iv) incorporating information
security requirements18 into the mission/business processes; and (v) establishing an enterprisearchitecture19 with embedded information security architecture20 that promotes cost-effective andefficient information technology solutions consistent with the strategic goals and objectives of theorganization and measures of performance. Tier 2 activities directly affect the activities carriedout at Tier 3. For example, the information security architecture portion of the enterprisearchitecture developed at Tier 2 influences and guides the allocation of information protectionneeds which, in turn, influences and guides the allocation of the security controls to specificcomponents of organizational information systems at Tier 3. Enterprise architecture decisions at
Tier 2 affect the design of information systems at Tier 3 including the types of information
technologies acceptable for use in developing those systems. The activities carried out at Tier 2
can also provide useful feedback to Tier 1, possibly resulting in revisions to the organizationalrisk frame or affecting risk management activities carried out at Tier 1, for example those
performed by the risk executive (function). Section 2.4 provides a more detailed description of
the specific activities associated with Tier 2.
Tier 3 addresses risk from an information system perspective and is guided by the risk context,
risk decisions and risk activities at Tiers 1 and 2. Tier 3 risk management activities include: (i)categorizing organizational information systems; (ii) allocating security controls to organizational
information systems and the environments in which those systems operate consistent with theorganization’s established enterprise architecture and embedded information security architecture;and (iii) managing the selection, implementation, assessment, authorization, and ongoing
monitoring of allocated security controls as part of a disciplined and structured systemdevelopment life cycle process implemented across the organization. At Tier 3, information
system owners, common control providers, system and security engineers, and information
system security officers make risk-based decisions regarding the implementation, operation, and17

The risk executive (function) is described in Section 2.3.2.

18

Information security requirements can be obtained from a variety of sources (e.g., legislation, policies, directives,
regulations, standards, and organizational mission/business/operational requirements). Organization-level security
requirements are documented in the information security program plan or equivalent document.
19

Federal Enterprise Architecture Reference Models and Segment and Solution Architectures are defined in the OMB
Federal Enterprise Architecture (FEA) Program, FEA Consolidated Reference Model Document, Version 2.3, October
2003, and OMB Federal Segment Architecture Methodology (FSAM), January 2009, respectively.
20
The information security architecture describes the security-related aspects of the enterprise architecture that areincorporated into the enterprise architecture definition as an integral part of the architecture development—that is a
sub-architecture derived from the enterprise architecture, not a separately defined layer or architecture.

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monitoring of organizational information systems. Based on these day-to-day operational riskbased decisions, authorizing officials make follow-on risk-based decisions on whether or not the
information systems are initially authorized to operate within the designated environments ofoperation or continue to receive authorization to operate on an ongoing basis. These ongoing riskbased decisions are informed by the risk management process with guidance from the risk
executive (function) and the various architectural considerations supporting the mission/businessprocesses. In addition, the activities at Tier 3 provide essential feedback to Tiers 1 and 2. New
vulnerabilities discovered in an organizational information system, for example, may havesystemic implications that extend organization-wide. Those same vulnerabilities may trigger
changes to the enterprise architecture and embedded information security architecture or may
require an adjustment to the organizational risk tolerance. Section 2.5 provides a more detailed
description of the specific activities associated with Tier 3.
Since mission and business success in organizations depends on information systems, those systems
must be dependable. To be dependable in the face of sophisticated threats, the information systems
must be used wisely in accordance with the degree of protection and resilience achieved.

2.3 TIER ONE—ORGANIZATION VIEW
Tier 1 addresses risk from an organizational perspective by establishing and implementing
governance structures that are consistent with the strategic goals and objectives of organizations
and the requirements defined by federal laws, directives, policies, regulations, standards, andmissions/business functions. Governance structures provide oversight for the risk management
activities conducted by organizations and include: (i) the establishment and implementation of arisk executive (function); (ii) the establishment of the organization’s risk management strategy
including the determination of risk tolerance; and (iii) the development and execution oforganization-wide investment strategies for information resources and information security.
2.3.1 GovernanceIn general, governance is the set of responsibilities and practices exercised by those responsible
for an organization (e.g., the board of directors and executive management in a corporation, thehead of a federal agency) with the express goal of: (i) providing strategic direction; (ii) ensuringthat organizational mission and business objectives are achieved; (iii) ascertaining that risks aremanaged appropriately; and (iv) verifying that the organization’s resources are used responsibly.21
Risks and resources can be associated with different organizational sectors (e.g., legal, finance,
information technology, regulatory compliance, information security). Different sectors require
specialized expertise in order to manage the risks associated with that sector. Thus, governancewithin organizations frequently is organized by sector.22 The five outcomes of governance related
to organization-wide risk management are:21
This definition is adapted from the IT Governance Institute. The Chartered Institute of Management Accountants andthe International Federation of Accountants also adopted this definition in 2004.
22

While governance is frequently organized by sectors, organizations are well served by establishing a single aligned
governance approach. A unified governance approach can coordinate the individual sector governance activities andprovide a consistent governance approach, organization-wide.

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Strategic alignment of risk management decisions with missions and business functions
consistent with organizational goals and objectives;•

Execution of risk management processes to frame, assess, respond to, and monitor risk toorganizational operations and assets, individuals, other organizations, and the Nation;•

Effective and efficient allocation of risk management resources;•

Performance-based outcomes by measuring, monitoring, and reporting risk management
metrics to ensure that organizational goals and objectives are achieved; and•Delivered value by optimizing risk management investments in support of organizational
objectives.23

As part of organizational governance, senior leaders/executives in consultation and collaboration
with the risk executive (function), determine: (i) the types of risk management decisions that arereserved for specific senior leadership roles (e.g., heads of agencies or chief executive officers,
chief financial officers, chief information officers, chief information security officers);24 (ii) thetypes of risk management decisions that are deemed to be organization-wide and the types ofdecisions that can be delegated to subordinate organizations or to other roles in the organization(e.g., systems and security engineers, mission/business owners, enterprise architects, information
security architects, common infrastructure or service providers, authorizing officials); and (iii)
how risk management decisions will be communicated to and by the risk executive (function).
Three different types of governance models (i.e., centralized, decentralized, and hybrid) aredescribed in Appendix F. Regardless of the governance model(s) employed, clear assignment andaccountability for accepting risk is essential for effective risk management.
Strong governance is the best indicator of senior leadership commitment to effective, consistent risk
management across the organization to achieve ongoing mission/business success.

2.3.2 Risk Executive (Function)
The risk executive is a functional role established within organizations to provide a morecomprehensive, organization-wide approach to risk management. The risk executive (function)
serves as the common risk management resource for senior leaders/executives, mission/businessowners, chief information officers, chief information security officers, information systemowners, common control providers,25 enterprise architects, information security architects,
information systems/security engineers, information system security managers/officers, and anyother stakeholders having a vested interest in the mission/business success of organizations. The
risk executive (function) coordinates with senior leaders/executives to:•

Establish risk management roles and responsibilities;

23

Information security governance outcomes adapted from IT Governance Institute, Information Security Governance:
Guidance for Boards of Directors and Executive Management, 2nd Edition, 2006.

24
There is no implication by listing various titles within an organization of any particular relationship (peer orotherwise) or lines of authority.
25

A common control provider is an organizational official responsible for the development, implementation,assessment, and monitoring of common controls (i.e., security controls inherited by information systems).

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Manage threat and vulnerability information with regard to organizational information
systems and the environments in which the systems operate;•

Establish organization-wide forums to consider all types and sources of risk (including
aggregated risk);•

Determine organizational risk based on the aggregated risk from the operation and use of
information systems and the respective environments of operation;•

Provide oversight for the risk management activities carried out by organizations to ensure
consistent and effective risk-based decisions;•

Develop a greater understanding of risk with regard to the strategic view of organizations andtheir integrated operations;•

Establish effective vehicles and serve as a focal point for communicating and sharing riskrelated information among key stakeholders internally and externally to organizations;•

Specify the degree of autonomy for subordinate organizations permitted by parent
organizations with regard to framing, assessing, responding to, and monitoring risk;27•

Promote cooperation and collaboration among authorizing officials to include security
authorization actions requiring shared responsibility (e.g., joint/leveraged authorizations);28•

Ensure that security authorization decisions consider all factors necessary for mission andbusiness success; and•Ensure shared responsibility for supporting organizational missions and business functions
using external providers receives the needed visibility and is elevated to appropriate decisionmaking authorities.

The risk executive (function) presumes neither a specific organizational structure nor formal
responsibility assigned to any one individual or group within the organization. Heads of agencies
or organizations may choose to retain the risk executive (function) or to delegate the function.
The risk executive (function) requires a mix of skills, expertise, and perspectives to understandthe strategic goals and objectives of organizations, organizational missions/business functions,
technical possibilities and constraints, and key mandates and guidance that shape organizational
operations. To provide this needed mixture, the risk executive (function) can be filled by a single
individual or office (supported by an expert staff) or by a designated group (e.g., a risk board,

26
Organizational risk decisions include investment decisions (see Section 2.3.4). Organizational risk tolerance isdetermined as part of the risk framing component (see Section 2.3.3) and defined in the risk management strategy.
27

Because subordinate organizations responsible for carrying out derivative or related missions may have alreadyinvested in their own methods of framing, assessing, responding to, and monitoring risk, parent organizations may
allow a greater degree of autonomy within parts of the organization or across the entire organization in order tominimize costs. When a diversity of risk management activities is allowed, organizations may choose to employ, when
feasible, some means of translation and/or synthesis of the risk-related information produced from those activities toensure that the output of the different activities can be correlated in a meaningful manner.
28

NIST Special Publication 800-37 provides guidance on joint and leveraged authorizations.

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executive steering committee, executive leadership council).29 The risk executive (function) fits
into the organizational governance structure in such a way as to facilitate efficiency and to
maximize effectiveness. While the organization-wide scope situates the risk executive (function)
at Tier 1, its role entails ongoing communications with and oversight of the risk management
activities of mission/business owners, authorizing officials, information system owners, common
control providers, chief information officers, chief information security officers, information
system and security engineers, information system security managers/officers, and otherstakeholders at Tiers 2 and 3.
To be effective, organization‐wide risk management programs require the strong commitment,
direct involvement, and ongoing support from senior leaders/executives. The objective is toinstitutionalize risk management into the day‐to‐day operations of organizations as a priority andan integral part of how organizations conduct operations in cyberspace—recognizing that this isessential in order to successfully carry out missions in threat‐laden operational environments.

2.3.3 Risk Management Strategy
An organizational risk management strategy, one of the key outputs of risk framing, addresses
how organizations intend to assess, respond to, and monitor risk—the risk associated with theoperation and use of organizational information systems. The risk management strategy makes
explicit the specific assumptions, constraints, risk tolerances, and priorities/trade-offs used withinorganizations for making investment and operational decisions. The risk management strategy
also includes any strategic-level decisions and considerations on how senior leaders/executives
are to manage information security risk to organizational operations and assets, individuals, otherorganizations, and the Nation. An organization-wide risk management strategy includes, forexample, an unambiguous expression of the risk tolerance for the organization, acceptable risk
assessment methodologies, risk response strategies, a process for consistently evaluating risk
across the organization with respect to the organization’s risk tolerance, and approaches formonitoring risk over time. The use of a risk executive (function) can facilitate consistent,
organization-wide application of the risk management strategy. The organization-wide risk
management strategy can be informed by risk-related inputs from other sources both internal andexternal to the organization to ensure the strategy is both broad-based and comprehensive.
An important Tier 1 risk management activity and also part of risk framing, is the determinationof risk tolerance. Risk tolerance is the level of risk or degree of uncertainty that is acceptable toorganizations and is a key element of the organizational risk frame. Risk tolerance affects allcomponents of the risk management process—having a direct impact on the risk management
decisions made by senior leaders/executives throughout the organization and providing important
constraints on those decisions. For example, risk tolerance affects the nature and extent of risk
management oversight implemented in organizations, the extent and rigor of risk assessments
performed, and the content of organizational strategies for responding to risk. With regard to risk
assessments, more risk-tolerant organizations may be concerned only with those threats that peerorganizations have experienced while less risk-tolerant organizations may expand the list to
include those threats that are theoretically possible, but which have not been observed inoperational environments. With regard to risk response, less risk-tolerant organizations are likely
29

Organizations emphasize the need for inclusiveness within the risk executive (function) by senior leaders/executives
in mission/business areas to help ensure proper information security planning, resourcing, and risk management.

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to require additional grounds for confidence in the effectiveness of selected safeguards andcountermeasures or prefer safeguards and countermeasures that are more mature and have a
proven track record. Such organizations may also decide to employ multiple safeguards andcountermeasures from multiple sources (e.g., antivirus software at clients and servers that areprovided by different vendors). Another example illustrating the impact of risk tolerance on risk
response is that risk tolerance can also affect the organizational requirements for trustworthinessprovided by specific information technologies. Two organizations may choose the same
information technologies, but their relative degree of risk tolerance may impact the degree ofassessment required prior to deployment.
There is no correct level of organizational risk tolerance. Rather, the degree of risk tolerance is:(i) generally indicative of organizational culture; (ii) potentially different for different types oflosses/compromises; and (iii) highly influenced by the individual subjective risk tolerance ofsenior leaders/executives. Yet, the ramifications of risk decisions based on risk tolerance arepotentially profound, with less risk-tolerant organizations perhaps failing to achieve needed
mission/business capabilities in order to avoid what appears to be unacceptable risk; while morerisk-tolerant organizations may focus on near-term mission/business efficiencies at the expense of
setting themselves up for future failure. It is important that organizations exercise due diligence indetermining risk tolerance—recognizing how fundamental this decision is to the effectiveness of
the risk management program.
2.3.4 Investment Strategies
Investment strategies30 play a significant role in organizational risk management efforts. These
strategies generally reflect the long-term strategic goals and objectives of organizations and theassociated risk management strategies developed and executed to ensure mission and businesssuccess. Underlying all investment strategies is the recognition that there is a finite amount of
resources available to invest in helping organizations effectively manage risk—that is, effectively
addressing risk to achieve on-going mission/business success.
Mission and Risk Priorities
Organizations generally conduct a variety of missions and are involved in different types ofbusiness functions. This is especially true for large and complex organizations that have different
organizational components, each of which is typically focused on one or two primary missions.
While all of these organizational components and associated missions/business functions arelikely to be important and play a key role in the overall success of organizations, in reality they
are not of equal importance. The greater the criticality of organizational missions and business
functions, the greater the necessity for organizations to ensure that risks are adequately managed.
Such missions and business functions are likely to require a greater degree of risk management
investments than missions/business functions deemed less critical. The determination of therelative importance of the missions/business functions and hence the level of risk management
investment, is something that is decided upon at Tier 1, executed at Tier 2, and influences risk
management activities at Tier 3.
Anticipated Risk Response Needs
There is a great variation in the nature of potential threats facing organizations, ranging fromhackers attempting to merely deface organizational Web sites (e.g., cyber vandalism), to insider
30
Investment strategies can include organizational approaches to: (i) replacing legacy information systems (e.g.,
phasing items in gradually, replacing entirely); (ii) outsourcing and using external providers of information systems andservices; and (iii) internal development vs. acquisition of commercially available information technology products.

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threats, to sophisticated terrorist groups/organized criminal enterprises seeking to exfiltratesensitive information, to a nation state’s military attempting to destroy or disrupt critical missions
by attacking organizational information systems.31 The strategic investments required to address
the risk from more traditional adversaries (e.g., hackers conducting small-group activities withlimited capabilities) are considerably different than the investments required to address the risk
associated with advanced persistent threats consistent with more advanced adversaries (e.g.,nation states or terrorist groups with highly sophisticated levels of expertise and resources that
seek to establish permanent footholds in organizations for purposes of impeding aspects of theorganizational missions). To address less sophisticated threats, organizations can focus theirefforts at Tier 3—investing to ensure that needed safeguards and countermeasures (e.g., security
controls, security services, and technologies) are obtained, implemented correctly, operating as
intended, and producing the desired effect with regard to meeting information security policies
and addressing known vulnerabilities. In addition to these basic investments, organizations canalso invest in continuous monitoring processes to ensure that the acquired security controls,
services, and technologies are operating effectively throughout the system development life cycle.
When organizations need to address advanced persistent threats, it is likely that adequately
addressing related risks at Tier 3 is not feasible because necessary security solutions are notcurrently available in the commercial marketplace. In those instances, organizations must
purposefully invest beyond Tier 3 for significant response capabilities at Tier 2, and to someextent at Tier 1. At Tier 3, the nature of investment is likely to change from implementation ofexisting solutions to an added strategic focus on investing in leading-edge information security
technologies (essentially experimenting with innovative security solutions/technologies and being
an early adopter) or investing in information security research and development efforts to address
specific technology gaps.32 Information security investments to address advanced persistent
threats may require expenditures over the course of several years, as new security solutions andtechnologies transition from research to development to full deployment. The long-term view ofstrategic investing in the risk response needs for organizations can help to reduce the continuing
focus on near-term vulnerabilities discovered in information systems—vulnerabilities that exist
due to the complexity of the information technology products and systems and the inherent
weaknesses in those products and systems.
Limitations on Strategic Investments
The ability of organizations to provide strategic information security investments is limited.
Where the desired strategic investment funding or strategic resources33 are not available toaddress specific needs, organizations may be forced to make compromises. For example,
organizations might extend the time frame required for strategic information security objectives
to be accomplished. Alternatively, organizations might prioritize risk management investments,
opting to provide resources (financial or otherwise) to address some critical strategic needs
sooner than other less critical needs. All investment decisions require organizations to prioritizerisks and to assess the potential impacts associated with alternative courses of action.

31

The threats described above are a subset of the overarching threat space that also includes errors of omission andcommission, natural disasters, and accidents.
32
This investment strategy is a change from vulnerability and patch management to a longer-term strategy addressing
information security gaps such as the lack of information technology products with the trustworthiness necessary toachieve information system resilience in the face of advanced persistent threats.
33
In some instances, the limitations may not be financial in nature, but limitations in the number of individuals with theappropriate skills/expertise or limitations regarding the state of technology.

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2.4 TIER TWO—MISSION/BUSINESS PROCESS VIEW
Tier 2 addresses risk from a mission/business process perspective by designing, developing, andimplementing mission/business processes that support the missions/business functions defined atTier 1. Organizational mission/business processes guide and inform the development of anenterprise architecture that provides a disciplined and structured methodology for managing thecomplexity of the organization’s information technology infrastructure. A key component of theenterprise architecture is the embedded information security architecture that provides a roadmap
to ensure that mission/business process-driven information security requirements and protectionneeds are defined and allocated to appropriate organizational information systems and theenvironments in which those systems operate.
2.4.1 Risk-Aware Mission/Business Processes
The risk management activities at Tier 2 begin with the identification and establishment of riskaware mission/business processes to support the organizational missions and business functions.
A risk-aware mission/business process is one that explicitly takes into account the likely risk sucha process would cause if implemented. Risk aware processes are designed to manage risk inaccordance with the risk management strategy defined at Tier 1 and explicitly account for risk
when evaluating the mission/business activities and decisions at Tier 2.34 Implementing riskaware mission/business processes requires a thorough understanding of the organizational
missions and business functions and the relationships among missions/business functions andsupporting processes. This understanding is a prerequisite to building mission/business processes
sufficiently resilient to withstand a wide variety of threats including routine and sophisticatedcyber attacks, errors/accidents, and natural disasters. An important part of achieving risk-aware
processes is the understanding of senior leaders/executives of: (i) the types of threat sources andthreat events that can adversely affect the ability of organizations to successfully execute their
missions/business functions); (ii) the potential adverse impacts/consequences on organizational
operations and assets, individuals, other organizations, or the Nation if the confidentiality,
integrity, or availability of information or information systems used in a mission/business process
is compromised; and (iii) the likely resilience to such a compromise that can be achieved with agiven mission/business process definition, applying realistic expectations for the resilience of
information technology.
A key output from the Tier 2 definition of mission/business processes is the selected risk response
strategy35 for these processes within the constraints defined in the risk management strategy. The
risk response strategy includes identification of information protection needs and the allocation of
those needs across components of the process (e.g., allocation to protections within information
systems, protections in the operational environments of those systems, and allocation to alternate
mission/business execution paths based on the potential for compromise).
2.4.2 Enterprise Architecture
A significant risk-related issue regarding the ability of organizations to successfully carry out
missions and business functions is the complexity of the information technology being used in
information systems. To address this complexity and associated potential risk, organizations needa disciplined and structured approach for managing information technology assets supporting34
The identification of organizational mission/business processes includes defining the types of information that theorganization needs to successfully execute those processes, the criticality and/or sensitivity of the information, and theinformation flows both internal and external to the organization.
35

Risk response strategies are described in Appendix H.

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their mission/business processes. Providing greater clarity and understanding of the information
technology infrastructure of organizations including the design and development of the associatedinformation systems is a prerequisite for maximizing the resilience and wise use of these systems
in the face of increasingly sophisticated threats. This type of clarity and understanding can beeffectively achieved through the development and implementation of enterprise architecture.
Enterprise architecture is a management practice employed by organizations to maximize theeffectiveness of mission/business processes and information resources in helping to achieve
mission/business success. Enterprise architecture establishes a clear and unambiguous connection
from investments (including information security investments) to measurable performance
improvements whether for an entire organization or portion of an organization. Enterprisearchitecture also provides an opportunity to standardize, consolidate, and optimize information
technology assets. These activities ultimately produce information systems that are moretransparent and therefore, easier to understand and protect. In addition to establishing a roadmap
for more efficient and cost-effective usage of information technology throughout organizations,enterprise architecture provides a common language for discussing risk management issues
related to missions, business processes, and performance goals—enabling better coordination andintegration of efforts and investments across organizational and business activity boundaries. A
well-designed enterprise architecture implemented organization-wide, promotes more efficient,cost-effective, consistent, and interoperable information security capabilities to help organizations
better protect missions and business functions—and ultimately more effectively manage risk.
The Federal Enterprise Architecture (FEA) defines a collection of interrelated reference models
including Performance, Business, Service Component, Data, and Technical as well as moredetailed segment and solution architectures that are derived from the enterprise architecture.36
Organizational assets (including programs, processes, information, applications, technology,
investments, personnel, and facilities) are mapped to the enterprise-level reference models tocreate a segment-oriented view of organizations. Segments are elements of organizations
describing mission areas, common/shared business services, and organization-wide services.
From an investment perspective, segment architecture drives decisions for a business case orgroup of business cases supporting specific mission areas or common/shared services. The
primary stakeholders for segment architecture are mission/business owners. Following closelyfrom segment architecture, solution architecture defines the information technology assets withinorganizations used to automate and improve mission/business processes. The scope of solutionarchitecture is typically used to develop and implement all or parts of information systems orbusiness solutions, including information security solutions. The primary stakeholders forsolution architectures are information system developers and integrators, information systemowners, information system/security engineers, and end users.
The FEA concepts that define needs‐driven, performance‐based business processes are applied byorganizations, recognizing that effectively managing risk arising from operating in a cyberspaceenvironment with sophisticated, high‐end threats is a key need and measure of performance.

36
The Federal Enterprise Architecture is described in a series of documents published by the OMB FEA Program
Management Office. Additional information on the FEA reference models and the segment and solution architectures
can be found in the FEA Consolidated Reference Model Document and FEA Practice Guidance, respectively.

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Enterprise architecture also promotes the concepts of segmentation, redundancy, and eliminationof single points of failure—all concepts that can help organizations more effectively manage risk.
Segmentation is important because it allows organizations to separate missions/business functions
and operations and the information systems, system components, or subsystems supporting thosemissions, functions, and operations from other functions and operations and supporting systems.
Segmentation helps to define more manageable components and to potentially reduce the degreeof harm from a successful threat exploitation of a vulnerability. Segment architecture supports theconcept of segmentation at the highest levels of organizations and the concept is carried forward
through solution architecture (including decomposition of information systems and networks into
subsystems and subnetworks, as appropriate).
The concept of redundancy is also very important in enterprise architecture. With the highprobability of breaches or compromises when threats exploit vulnerabilities in organizational
information systems, the failure or degradation of one or more information system components isinevitable. To enhance information system resilience as part of risk response, organizational
information systems provide a failover mode that helps to ensure that failed components trigger
appropriate backup components with similar capability. This type of capability is essential toaddress the advanced persistent threat in situations where organizations might be required tooperate while under cyber attack in a degraded mode but still providing a sufficient level ofcapability to achieve mission/business success. Segment and solution architectures support theconcept of redundancy by establishing a disciplined and structured approach to developing andimplementing key architectural considerations that facilitate replication of critical information
system components, where appropriate.
Finally, the concept of single point of failure and the elimination of such failure points is easily
supported by enterprise architecture. Having the essential visibility and transparency provided in
the architectural design at the organization level exposes potential single points of failure early inthe development process. Thus, single points of failure are effectively addressed by segment andsolution architectures. Failure to address potential single points of failure early in the architecturaldesign can result in severe or catastrophic effects when those failure points are propagated to
information systems and the actual failure causes a loss of mission/business capability.
2.4.3 Information Security Architecture
The information security architecture is an integral part of the organization’s enterprisearchitecture. It represents that portion of the enterprise architecture specifically addressing
information system resilience and providing architectural information for the implementation of
security capabilities.37 The primary purpose of the information security architecture is to ensurethat mission/business process-driven information security requirements are consistently and costeffectively achieved in organizational information systems and the environments in which thosesystems operate consistent with the organizational risk management strategy.38 The information
security architecture also incorporates security requirements from legislation, directives, policies,
regulations, standards, and guidance into the segment architecture. Ultimately, the information
security architecture provides a detailed roadmap that allows traceability from the highest-levelstrategic goals and objectives of organizations, through specific mission/business protectionneeds, to specific information security solutions provided by people, processes, and technologies.
37
In general, a version of an information security architecture exists for each of the enterprise architecture reference
models; including Performance, Business, Service Component, Data, and Technical.
38

Organizations employ sound system and security engineering principles and techniques to ensure that information
security requirements are effectively implemented in organizational information systems.

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Information security requirements defined in the segment architecture are implemented in thesolution architecture in the form of management, operational, and technical security controls. The
security controls are employed within or inherited by the individual information systems and theenvironments in which the systems operate. The allocation39 of security controls is consistent with
the information security architecture as well as concepts such as defense-in-depth and defense-inbreadth. Figure 3 illustrates the process of integrating information security requirements into theenterprise architecture and the associated information systems supporting the mission/businessprocesses of organizations.

ORGANIZATIONRISK MANAGEMENT STRATEGY
Mission / Business
Process

Mission / Business
Process

Mission / Business
Process
INFORMSINFORMSENTERPRISE ARCHITECTURE(Reference Models, Segment Architecture, Solution Architecture)
INFORMATION SECURITY ARCHITECTURE(Security Requirement and Control Allocation)
INFORMSINFORMSINFORMATIONSYSTEM

INFORMATIONSYSTEM

INFORMATIONSYSTEM

Environments of Operation

FIGURE 3: INFORMATION SECURITY REQUIREMENTS INTEGRATION

To summarize, risk management considerations can be addressed as an integral part of theenterprise architecture by:•Developing a segment architecture linked to the strategic goals and objectives oforganizations, defined missions/business functions, and associated mission/businessprocesses;•

Identifying where effective risk response is a critical element in the success of organizational
missions and business functions;•Defining the appropriate, architectural-level information security requirements withinorganization-defined segments based on the organization’s risk management strategy;•

Incorporating an information security architecture that implements architectural-level
information security requirements;

39

Security control allocation occurs down to the information system component level, employing security controls in
selected system components assigned to provide a specific security capability. Specific guidance on how to incorporate
information security requirements into enterprise architecture is provided in the FEA Security and Privacy Profile.

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Translating the information security requirements from the segment architecture into specificsecurity controls for information systems/environments of operation as part of the solutionarchitecture;•

Allocating management, operational, and technical security controls to information systems
and environments of operation as defined by the information security architecture; and•Documenting risk management decisions at all levels of the enterprise architecture.40

Enterprise architecture provides a disciplined and structured approach to achieving consolidation,
standardization, and optimization of information technology assets that are employed withinorganizations. Risk reduction can be achieved through the full integration of management
processes41 organization-wide, thereby providing greater degrees of security, privacy, reliability,
and cost-effectiveness for the missions and business functions being carried out by organizations.
This integrated approach of incorporating the organization’s risk management strategy into
enterprise architecture gives senior leaders/executives the opportunity to make more informed
risk-based decisions in dynamic operating environments—decisions based on trade-offs between
fulfilling and improving organizational missions and business functions and managing the many
types and sources of risk that must be considered in their risk management responsibilities.

The use of enterprise architecture can greatly enhance an organization’s risk posture by providing
greater transparency and clarity in design and development activities—enabling a more consistent
application of the principle of ‘wise use’ of technologies across the organization; optimizing thetrade‐offs between value gained from and the risk being incurred through the information systems
supporting organizational missions/business functions.

2.5 TIER THREE—INFORMATION SYSTEMS VIEW
All information systems, including operational systems, systems under development, and systems
undergoing modification, are in some phase of the system development life cycle.42 In addition to
the risk management activities carried out at Tier 1 and Tier 2 (e.g., reflecting the organization’srisk management strategy within the enterprise architecture and embedded information security
architecture), risk management activities are also integrated into the system development life
cycle of organizational information systems at Tier 3. The risk management activities at Tier 3
reflect the organization’s risk management strategy and any risk related to the cost, schedule, andperformance requirements for individual information systems supporting the mission/business
functions of organizations. Risk management activities take place at every phase in the systemdevelopment life cycle with the outputs at each phase having an effect on subsequent phases.

40

The activities required to effectively incorporate information security into enterprise architecture are carried out by
key stakeholders within organizations including mission/business owners, chief information officers, chief information
security officers, authorizing officials, and the risk executive (function).
41
A management process is a process for planning and controlling the performance or execution of organizational
activities (e.g., programs, projects, tasks, processes). Management processes are often referred to as performancemeasurement and management systems.
42

There are typically five phases in system development life cycles: (i) initiation; (ii) development/ acquisition; (iii)
implementation; (iv) operation/maintenance; and (v) disposal. Organizations may use a variety of system development
life cycle processes including, for example, waterfall, spiral, or agile development.

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significantly influence information system requirements and the types of solutions that are
deemed by organizations to be acceptable (from a technological and operational perspective) in
the face of such threats. Information security requirements are a subset of the functional
requirements levied on information systems and are incorporated into the system development
life cycle simultaneously with the other requirements. The information security requirements
define the needed security functionality44 for information systems and the level of trustworthinessfor that functionality (see Section 2.6 on the trustworthiness of information systems).
Organizations also address risk management issues during the development/acquisition phase of
the system development life cycle (e.g., system design, system development/integration, anddemonstration). Whether in response to specific and credible threat information or assumptions
about the threat, potential design-related vulnerabilities in organizational information systems canbe mitigated during this phase by choosing less susceptible alternatives. Supply chain risk during
the acquisition phase of the information system is also an area of concern for organizations. To
address supply chain risk during the development/acquisition phase, organizations implement
specific security controls as deemed necessary by the organization. Organizations also consider
risk from the standpoint of the environment in which the information systems are intended tooperate when selecting the most appropriate security controls. To be effective, controls must be
mutually supporting, employed with realistic expectations for effectiveness, and implemented aspart of an explicit, information system-level security architecture that is consistent with thesecurity architecture embedded in the organization’s enterprise architecture. For example, whencertain technical controls are less than effective due to achievable levels of trustworthiness inorganizational information systems, management and operational controls are employed ascompensating controls—thus providing another opportunity to manage risk.
Subsequent to initiation, development, and acquisition, the implementation phase of the systemdevelopment life cycle provides an opportunity for the organization to determine the effectivenessof the selected security controls employed within or inherited by the information systems underdevelopment prior to the commencement of actual operations. Expectations generated during thisphase can be compared with actual behavior as information systems are implemented. Given thecurrent threat information that is available to organizations and organizational assumptions about
the threat, the information discovered during effectiveness assessments, and the potential adverse
impacts on organizational missions/business functions, it may be necessary to modify or change
the planned implementation of the information system. Risk-related information can be developed
to justify the proposed changes.
Once approved for operation, information systems move into the operations/maintenance phaseof the system development life cycle. The monitoring of security control effectiveness and anychanges to organizational information systems and the environments in which those systems
operate ensure that selected risk response measures are operating as intended on an ongoing basis.
Ongoing monitoring is paramount to maintaining situational awareness of risk to organizational
missions and business functions—an awareness that is critical to making the necessary course
43

Information security requirements can be obtained from a variety of sources (e.g., legislation, policies, directives,
regulations, standards, and organizational mission/business/operational requirements).

44
Security functionality is the set of security controls employed within or inherited by an information system or theenvironment in which the system operates. The security controls, described in NIST Special Publication 800-53, areimplemented by a combination of people, processes, and technologies.

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corrections when risk exceeds organizational risk tolerance. During the disposal phase of thesystem development life cycle, it is standard procedure for organizations to verifiably remove
prior to disposal, any information from information systems that may cause adverse impacts, if
compromised, and also assess any risk associated with these activities.45
Early integration of information security requirements into the system development life cycle isthe most cost-effective method for implementing the organizational risk management strategy atTier 3.46 Incorporating risk management into the system development life cycle ensures that therisk management process is not isolated from the other management processes employed by theorganization to develop, acquire, implement, operate, and maintain the information systems
supporting organizational missions and business functions. To support system development life
cycle integration, risk management (including information security considerations) is also
incorporated into program, planning, and budgeting activities to help ensure that appropriate
resources are available when needed—thus facilitating the completion of program and project
milestones established by organizations. To incorporate risk management into program, planningand budgeting activities, risk and information security professionals are an integral part of theteams and structures used to address information system and organizational requirements.
The overall resilience of organizational information systems (i.e., how well systems operate while
under stress) is a key factor and performance measure in determining the potential survivability of
missions/business functions. The use of certain information technologies may introduce inherent
vulnerabilities into these information systems—resulting in risk that may have to be mitigated by
reengineering the current mission/business processes. The wise use of information technologies
during the design, development, and implementation of organizational information systems is ofparamount importance in managing risk.

Making information security‐related requirements and activities an integral part of the systemdevelopment life cycle ensures that senior leaders/executives consider the risks to organizational
operations and assets, individuals, other organizations, and the Nation resulting from the operation
and use of information systems and take appropriate actions to exercise the organization’s due
diligence.

2.6 TRUST AND TRUSTWORTHINESS
Trust is an important concept related to risk management. How organizations approach trust
influences their behaviors and their internal and external trust relationships. This section
introduces some conceptual ways of thinking about trust, defines the concept of trustworthiness,and shows how the concept of trustworthiness can be used in developing trust relationships.
Appendix G describes several trust models that can be applied in an organizational context, and45
While the presentation of the system development life cycle is expressed as a linear flow, in reality, the knowledge
gained during a later phase of the life cycle or changes in system requirements or operational environments may dictate
revisiting an earlier phase. For example, changes in the threat environment during the operation/maintenance phrase
may dictate the need to initiate a new or revised system capability.
46
The Risk Management Framework (RMF), described in NIST Special Publication 800-37, provides a structured
process that integrates risk management activities into the system development life cycle. The RMF operates primarily
at Tier 3 but also interacts with Tier 1 and Tier 2 (e.g., providing feedback from authorization decisions to the risk
executive [function], disseminating updated risk information to authorizing officials, common control providers, andinformation system owners).

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considers how trust can be measured. The importance of organizational governance, culture, andtransparency47 are also considered with regard to trust and its affect on risk management.
Trust is a belief that an entity will behave in a predictable manner in specified circumstances.
The entity may be a person, process, object or any combination of such components. The entity
can be of any size from a single hardware component or software module, to a piece of equipment
identified by make and model, to a site or location, to an organization, to a nation-state. Trust,
while inherently a subjective determination, can be based on objective evidence and subjective
elements. The objective grounds for trust can include for example, the results of information
technology product testing and evaluation. Subjective belief, level of comfort, and experience
may supplement (or even replace) objective evidence, or substitute for such evidence when it isunavailable. Trust is usually relative to a specific circumstance or situation (e.g., the amount ofmoney involved in a transaction, the sensitivity or criticality of information, or whether safety is
an issue with human lives at stake). Trust is generally not transitive (e.g., you trust a friend but
not necessarily a friend of a friend). Finally, trust is generally earned, based on experience ormeasurement. However, in certain organizations, trust may be mandated by policy (see Appendix
G, mandated trust model).
Trustworthiness is an attribute of a person or organization that provides confidence to others of
the qualifications, capabilities, and reliability of that entity to perform specific tasks and fulfill
assigned responsibilities. Trustworthiness is also a characteristic of information technology
products and systems (see Section 2.6.2 on trustworthiness of information systems). The attributeof trustworthiness, whether applied to people, processes, or technologies, can be measured, atleast in relative terms if not quantitatively.48 The determination of trustworthiness plays a key rolein establishing trust relationships among persons and organizations. The trust relationships are
key factors in risk decisions made by senior leaders/executives.
2.6.1 Establishing Trust Among Organizations
Parties enter into trust relationships based on mission and business needs.49 Trust among parties
typically exists along a continuum with varying degrees of trust achieved based on a number offactors. Organizations can still share information and obtain information technology services even
if their trust relationship falls short of complete trust. The degree of trust required fororganizations to establish partnerships can vary widely based on many factors including theorganizations involved and the specifics of the situation (e.g., the missions, goals, and objectivesof the potential partners, the criticality/sensitivity of activities involved in the partnership, the risk
tolerance of the organizations participating in the partnership, and the historical relationshipamong the participants). Finally, the degree of trust among entities is not a static quality but canvary over time as circumstances change.
47

Transparency is achieved by providing visibility into the risk management and information security activities carriedout by organizations participating in partnerships (e.g., employing common security standards, specification language
for security controls including common controls, assessment procedures, risk assessment methodologies; defining
common artifacts and bodies of evidence used in making risk-related decisions).
48

Current state-of-the-practice for measuring trustworthiness can reliably differentiate between widely different levelsof trustworthiness and is capable of producing a trustworthiness scale that is hierarchical between similar instances ofmeasuring activities (e.g., the results from ISO/IEC 15408 [Common Criteria] evaluations).
49
Trust relationships can be: (i) formally established, for example, by documenting the trust-related information incontracts, service-level agreements, statements of work, memoranda of agreement/understanding, or interconnection
security agreements; (ii) scalable and inter-organizational or intra-organizational in nature; and/or (iii) represented bysimple (bilateral) relationships between two partners or more complex many-to many relationships among many
diverse partners.

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Organizations are becoming increasingly reliant on information system services50 and information
provided by external organizations as well as partnerships to accomplish missions and business
functions. This reliance results in the need for trust relationships among organizations.51 In manycases, trust relationships with external organizations, while generating greater productivity andcost efficiencies, can also bring greater risk to organizations. This risk is addressed by the risk
management strategies established by organizations that take into account the strategic goals andobjectives of organizations.
Effectively addressing the risk associated with the growing dependence on external service
providers and partnerships with domestic and international public and private sector participants
necessitates that organizations:•Define the types of services/information to be provided to organizations or the types of
information to be shared/exchanged in any proposed partnering arrangements;•

Establish the degree of control or influence organizations have over the externalorganizations participating in such partnering arrangements;•

Describe how the services/information are to be protected in accordance with the information
security requirements of organizations;•Obtain the relevant information from external organizations to determine trustworthiness andto support and maintain trust (e.g., visibility into business practices and risk/information
security decisions to understand risk tolerance);•

Appropriately balance mission/business-based requirements to support information sharing
while considering the risk of working with competing or hostile entities and the risk that otherorganizations, while neither competing or hostile, may be a path through which such entities
attack;•Determine if the ongoing risk to organizational operations and assets, individuals, otherorganizations, or the Nation resulting from the continuing use of the services/information or
the participation in the partnership, is at an acceptable level; and•Recognize that decisions to establish trust relationships are expressions of acceptable risk.

The degree of trust that an organization places in external organizations can vary widely, ranging
from those who are highly trusted (e.g., business partners in a joint venture that share a common
business model and common goals) to those who are less trusted and may represent greater
sources of risk (e.g., business partners in one endeavor who are also competitors or adversaries).
The specifics of establishing and maintaining trust can differ from organization to organization
based on mission/business requirements, the participants involved in the trust relationship, thecriticality/sensitivity of the information being shared or the types of services being rendered, thehistory between the organizations, and the overall risk to the organizations participating in therelationship. Appendix G provides several trust models that organizations can use when dealing
with external organizations.
In many situations, the trust established between organizations may not allow a full spectrum of
information sharing or a complete provision of services. When an organization determines that50

External information system services are services that are implemented outside of the system’s traditional
authorization boundary (i.e., services that are used by, but not a part of, the organizational information system).

51

External providers or mission/business partners can be public or private sector entities, domestic or international.

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the trustworthiness of another organization does not permit the complete sharing of informationor use of external services, the organization can: (i) mitigate risk, transfer risk, or share risk by
employing one or more compensating controls; (ii) accept a greater degree of risk; or (iii) avoid
risk by performing missions/business functions with reduced levels of functionality or possibly
no functionality at all.
Explicit understanding and acceptance of the risk to an organization’s operations and assets,
individuals, other organizations, and the Nation by senior leaders/executives (reflecting theorganization’s risk tolerance) are made in accordance with the organization’s risk management
strategy and a prerequisite for establishing trust relationships among organizations.

2.6.2 Trustworthiness of Information Systems
The concept of trustworthiness can also be applied to information systems and the information
technology products and services that compose those systems. Trustworthiness expresses thedegree to which information systems (including the information technology products from which
the systems are built) can be expected to preserve the confidentiality, integrity, and availability of
the information being processed, stored, or transmitted by the systems across the full range of
threats. Trustworthy information systems are systems that have been determined to have the levelof trustworthiness necessary to operate within defined levels of risk despite the environmental
disruptions, human errors, and purposeful attacks that are expected to occur in their environmentsof operation. Two factors affecting the trustworthiness of information systems are:•Security functionality (i.e., the security features/functions employed within the system); and•Security assurance (i.e., the grounds for confidence that the security functionality is effective
in its application).52

Security functionality can be obtained by employing within organizational information systems
and their environments of operation, a combination of management, operational, and technicalsecurity controls from NIST Special Publication 800-53.53 The development and implementationof needed security controls is guided by and informed by the enterprise architecture establishedby organizations.
Security assurance is a critical aspect in determining the trustworthiness of information systems.
Assurance is the measure of confidence that the security features, practices, procedures, andarchitecture of an information system accurately mediates and enforces the security policy.54
Assurance is obtained by: (i) the actions taken by developers and implementers55 with regard to
the design, development, implementation, and operation of the security functionality (i.e.,
security controls); and (ii) the actions taken by assessors to determine the extent to which thefunctionality is implemented correctly, operating as intended, and producing the desired outcome
52

Assurance also represents the grounds for confidence that the intended functionality of an information system iscorrect, always invoked (when needed), and resistant to bypass or tampering.
53
The employment of appropriate security controls for information systems and environments of operation is guided by
the first three steps in the Risk Management Framework (i.e., categorization, selection, and implementation).
54

A security policy is set of criteria for the provision of security services.

55

In this context, a developer/implementer is an individual or group of individuals responsible for the design,development, implementation, or operation of security controls for an information system or supporting infrastructure.

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with respect to meeting the security requirements for information systems and their environmentsof operation.56 Developers and implementers can increase the assurance in security functionality
by employing well-defined security policies and policy models, structured and rigorous hardware
and software development techniques, and sound system/security engineering principles.
Assurance for information technology products and systems is commonly based on theassessments conducted (and associated assessment evidence produced) during the initiation,acquisition/development, implementation, and operations/maintenance phases of the systemdevelopment life cycle. For example, developmental evidence may include the techniques andmethods used to design and develop security functionality. Operational evidence may include
flaw reporting and remediation, the results of security incident reporting, and the results ofongoing security control monitoring. Independent assessments by qualified assessors may include
analyses of the evidence as well as testing, inspections, and audits of the implementation of theselected security functionality.57
The concepts of assurance and trustworthiness are closely related. Assurance contributes to thetrustworthiness determination relative to an information technology product or an information
system. Developers/implementers of information technology products or systems may provide
assurance evidence by generating appropriate artifacts (e.g., the results of independent testing andevaluation, design documentation, high-level or low-level specifications, source code analysis).
Organizations using information technology products or systems may perform, or rely on others
to perform, some form of assessment on the products or systems. Organizations may also havedirect experience with the product or system, or may receive information about the performanceof the product or system from third parties. Organizations typically evaluate all of the available
assurance evidence, often applying different weighting factors as appropriate, to determine thetrustworthiness of the product or system relative to the circumstances.
Information technology products and systems exhibiting a higher degree of trustworthiness (i.e.,
products/systems having appropriate functionality and assurance) are expected to exhibit a lower
rate of latent design and implementation flaws and a higher degree of penetration resistanceagainst a range of threats including sophisticated cyber attacks, natural disasters, accidents, andintentional/unintentional errors. The susceptibility of missions/business functions of organizations
to known threats, the environments of operation where information systems are deployed, and the
maximum acceptable level of risk to organizational operations and assets, individuals, otherorganizations, or the Nation, guide the degree of trustworthiness needed.
Trustworthiness is a key factor in the selection and wise use of information technology products
used in organizational information systems. Insufficient attention to trustworthiness of information
technology products and systems can adversely affect an organization’s capability to successfully
carry out its assigned missions/business functions.

56

For other than national security systems, organizations meet minimum assurance requirements specified in NIST
Special Publication 800-53, Appendix E.
57

NIST Special Publication 800-53A provides guidance on assessing security controls in federal information systems.

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2.7 ORGANIZATIONAL CULTURE
Organizational culture refers to the values, beliefs, and norms that influence the behaviors andactions of the senior leaders/executives and individual members of organizations. Culture
describes the way things are done in organizations and can explain why certain things occur.
There is a direct relationship between organizational culture and how organizations respond to
uncertainties and the potential for near-term benefits to be the source for longer-term losses. The
organization’s culture informs and even, to perhaps a large degree, defines that organization’srisk management strategy. At a minimum, when an expressed risk management strategy is notconsistent with that organization’s culture, then it is likely that the strategy will be difficult if not
impossible to implement. Recognizing and addressing the significant influence culture has on
risk-related decisions of senior leaders/executives within organizations can therefore, be key toachieving effective management of risk.
Recognizing the impact from organizational culture on the implementation of an organizationwide risk management program is important as this can reflect a major organizational change.
This change must be effectively managed and understanding the culture of an organization plays
an important part in achieving such organization-wide change. Implementing an effective risk
management program may well represent a significant organization-wide change aligning thepeople, processes, and culture within the organization with the new or revised organizational
goals and objectives, the risk management strategy, and communication mechanisms for sharingrisk-related information among entities. To effectively manage such change, organizations
include cultural considerations as a fundamental component in their strategic-level thinking anddecision-making processes (e.g., developing the risk management strategy). If the seniorleaders/executives understand the importance of culture, they have a better chance of achieving
the organization’s strategic goals and objectives by successfully managing risk.
Culture also impacts the degree of risk being incurred. Culture is reflected in an organization’s
willingness to adopt new and leading edge information technologies. For example, organizations
that are engaged in research and development activities may be more likely to push technologicalboundaries. Such organizations are more prone to be early adopters of new technologies andtherefore, more likely to view the new technologies from the standpoint of the potential benefits
achieved versus potential harm from use. In contrast, organizations that are engaged in securityrelated activities may be more conservative by nature and less likely to push technologicalboundaries—being more suspicious of the new technologies, especially if provided by someentity with which the organization lacks familiarity and trust. These types of organizations arealso less likely to be early adopters of new technologies and would be more inclined to look at thepotential harm caused by the adoption of the new technologies. Another example is that someorganizations have a history of developing proprietary software applications and services, or
procuring software applications and services solely for their use. These organizations may bereluctant to use externally-provided software applications and services and this reluctance may
result in lower risk being incurred. Other organizations may, on the other hand, seek to maximize
advantages achieved by modern net-centric architectures (e.g., service-oriented architectures,cloud computing), where hardware, software, and services are typically provided by externalorganizations. Since organizations typically do not have direct control over assessment, auditing,and oversight activities of external providers, a greater risk might be incurred.
In addition to the cultural impacts on organizational risk management perspectives, there can also
be cultural issues between organizations. Where two or more organizations are operating together
toward a common purpose, there is a possibility that cultural differences in each of the respective
organizations may result in different risk management strategies, propensity to incur risk, and

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willingness to accept risk.58 For example, assume two organizations are working together tocreate a common security service intended to address the advanced persistent threat. The cultureof one of the organizations may result in a focus on preventing unauthorized disclosure of
information, while the nature of the other organization may result in an emphasis on mission
continuity. The differences in focus and emphasis resulting from organizational culture cangenerate different priorities and expectations regarding what security services to procure, because
the organizations perceive the nature of the threat differently. Such culture-related disconnects do
not occur solely between organizations but can also occur within organizations, where different
organizational components (e.g., information technology components, operational components)
have different values and perhaps risk tolerances. An example of an internal disconnect can beobserved in a hospital that emphasizes different cultures between protecting the personal privacyof patients and the availability of medical information to medical professionals for treatment
purposes.
Culture both shapes and is shaped by the people within organizations. Cultural influences andimpacts can be felt across all three tiers in the multitiered risk management approach. Seniorleaders/executives both directly and indirectly in Tier 1 governance structures set the stage forhow organizations respond to various approaches to managing risk. Senior leaders/executives
establish the risk tolerance for organizations both formally (e.g., through publication of strategy
and guidance documents) and informally (e.g., through actions that get rewarded and penalized,
the degree of consistency in actions, and the degree of accountability enforced). The direction set
by senior leaders/executives and the understanding of existing organizational values and priorities
are major factors determining how risk is managed within organizations.

2.8 RELATIONSHIP AMONG KEY RISK CONCEPTS
As indicated by the discussions above, there are a variety of risk-related concepts (e.g., risk
tolerance, trust, and culture), all of which have an impact on risk management. The concepts do
not operate in a vacuum; rather, there is often a strong interplay among the concepts (e.g., anorganization’s culture along with its governance structures and processes, often influences thepace of change and the implementation of its risk management strategy). For this reason, the risk
executive (function) and other parties involved in organizational risk-based decisions, need tohave an awareness and appreciation for all of the concepts. Several examples of the relationships
among the risk-related concepts are provided below. The list of relationships is not exhaustiveand serves only to illustrate how combining risk-related concepts can produce unintended
consequences, both positive and negative in scope.
2.8.1 Governance, Risk Tolerance, and Trust
As part of implementing the organization’s risk management strategy at Tier 1, the risk executive(function) establishes practices for sharing risk-related information with external entities. With
regard to the demonstration of due diligence for managing risk, organizations that are less risk
tolerant are likely to require more supporting evidence than organizations that are more risk
tolerant. Such organizations may only trust (and hence partner with) organizations with which
they have had a long and successful relationship (see direct historical trust model in Appendix G).
The amount of centralization59 within an organization may be reflective of the organizational risk
tolerance and/or its willingness to trust partnering organizations. Some organizations select a
58

A similar situation can exist between subordinate elements of an organization when these elements are afforded a fairamount of autonomy and operational authority.
59

Additional information on governance models can be found in Appendix F.

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decentralized governance structure for reasons such as widely diverging mission/business areas orneed for increased separation between mission/business lines due to sensitivity of the work. The
reasons for decentralization may reflect and likely will influence risk tolerance. For instance, if
there are no partnering organizations meeting the established trust qualifications, less risk-tolerantorganizations may require significantly more supporting evidence of due diligence (e.g., access torisk assessments, security plans, security assessment reports, risk acceptance decisions) than is
typically required in such situations (see validated trust model in Appendix G).
2.8.2 Trust and Culture
There is also potential interplay between the concepts of risk, trust, and culture. Changes in
mission/business requirements (e.g., a new mission or business requirement to interconnect
information systems for the purpose of sharing information) may require a greater acceptance ofrisk than is typical for that organization. In the short term, additional measures may be needed toestablish and/or build trust (e.g., increase transparency between interconnecting organizations).
Such measures facilitate building trust and evolving organizational beliefs and norms over the
longer term. Interaction between trust and culture can also be observed when there are gaps andoverlaps in responsibility among an organization’s components that may impact the ability for
proposed actions (especially new actions) to be carried out quickly. For example, manyorganizations with decentralized governance structures may be slower to embrace change unlessthere has been an extensive effort to expand coordination and improve trust among organizational
components. Assume that some organizations are directed by higher authorities (see mandated
trust model in Appendix G) to share information more freely with peer organizations. If theorganizations have a history and culture of tightly controlling information, they may be reluctanceto share information with outside entities, even though directed to do so. In such situations,organizations may require that partnering organizations provide concrete evidence of the steps
taken to protect the information designated for sharing prior to release.
2.8.3 Investment Strategy and Risk Tolerance
Investment strategies and organizational risk tolerance also have linkages. Organizations may
recognize that there is a need to address advanced persistent threats where adversaries haveachieved some degree of penetration of and foothold within organizational information systems
and the environments in which those systems operate. The strategic investments that are required
to address these types of threats may, in part, be influenced by the risk tolerance of organizations.
Less risk-tolerant organizations may focus investments on information technologies that prevent
adversaries from gaining further access within organizations and/or limiting the damage done tothe organizations even if at the expense of achieving some of the many mission/business benefits
automation can provide. More risk-tolerant organizations may focus investments on information
technologies that provide greater mission/business benefits even if these benefits are achieved at
the expense of adversaries gaining some advantage or benefit from compromising the information
systems and supporting infrastructure.
2.8.4 Culture and Risk Tolerance
A major part of managing risk within organizations is identifying what the organizational risk
tolerance is for a particular type of loss. Risk tolerance can be described as a combination of thecultural willingness to accept certain types of loss within organizations and the subjective riskrelated actions of senior leaders/executives. Risk-based decisions within organizations often
reflect the blending of the risk tolerance of senior leaders/executives and the risk tolerance that isembedded within the culture of organizations. In establishing organizational risk tolerance, thevalues, beliefs, and norms of organizations are examined in order to understand why risk trade-

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offs are made. For some organizations, in particular those organizations that deal with critical
and/or sensitive information, personally identifiable information, or classified information, theemphasis is often on preventing unauthorized disclosure. In contrast, in those organizations
driven by a combination of organizational culture and the nature of their missions and business
functions, the emphasis is on maintaining the availability of information systems to achieve an
ongoing operational capability. As part of establishing organizational risk tolerance, a risk
assessment identifies the kinds and levels of risk to which organizations may be exposed. This
assessment considers both the likelihood and impact of undesired events (see Chapter Three, therisk management process).

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CHAPTER THREE

THE PROCESSAPPLYING RISK MANAGEMENT CONCEPTS ACROSS AN ORGANIZATIONT

his chapter describes a process for managing information security risk including: (i) ageneral overview of the risk management process; (ii) how organizations establish thecontext for risk-based decisions; (iii) how organizations assess risk considering threats,vulnerabilities, likelihood, and consequences/impact; (iv) how organizations respond to risk once
determined; and (v) how organizations monitor risk over time with changing mission/businessneeds, operating environments, and supporting information systems . The risk management
process, introduced in Chapter Two, is described in this chapter along with its applicability acrossthe three tiers of risk management. Each of the steps in the risk management process (i.e., risk
framing, risk assessment, risk response, and risk monitoring) is described in a structured manner
focusing on the inputs or preconditions necessary to initiate the step, the specific activities thatcompose the step, and the outputs or post conditions resulting from the step.60 The effect of therisk concepts described in Chapter Two (e.g., risk tolerance, trust, and culture) are also discussed
in the context of the risk management process and its multitiered application. Figure 4 illustrates
the risk management process as applied across the tiers—organization, mission/business process,and information system. The bidirectional arrows in the figure indicate that the information andcommunication flows among the risk management components as well as the execution order ofthe components, may be flexible and respond to the dynamic nature of the risk management
process as it is applied across all three tiers.

ASSESSFRAME

TIER 1 - ORGANIZATIONTIER 2 - MISSION / BUSINESS PROCESSESMONITORTIER 3 - INFORMATION SYSTEMSRESPOND

FIGURE 4: RISK MANAGEMENT PROCESS APPLIED ACROSS THE TIERS

60

Additional guidance on selected steps in the risk management process (e.g., risk assessment, risk monitoring) can befound in other NIST Special Publications listed in Appendix A.

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Organization, Mission, and Information System View________________________________________________________________________________________________The steps in the risk management process are not inherently sequential in nature. The steps are
performed in different ways, depending on the particular tier where the step is applied and onprior activities related to each of the steps. What is consistent is that the outputs or post conditions
from a particular risk management step directly impact one or more of the other risk management
steps in the risk management process. Organizations have significant flexibility in how the risk
management steps are performed (e.g., sequence, degree of rigor, formality, and thoroughness ofapplication) and in how the results of each step are captured and shared—both internally andexternally. Ultimately, the objective of applying the risk management process and associated riskrelated concepts is to develop a better understanding of information security risk in the context ofthe broader actions and decisions of organizations and in particular, with respect to organizational
operations and assets, individuals, other organizations, and Nation.

3.1 FRAMING RISK
Risk framing establishes the context and provides a common perspective on how organizations
manage risk. Risk framing, as its principal output, produces a risk management strategy that
addresses how organizations intend to assess risk, respond to risk, and monitor risk. The risk
management strategy makes explicit the specific assumptions, constraints, risk tolerances, andpriorities/trade-offs used within organizations for making investment and operational decisions.
The risk management strategy also includes any strategic-level decisions and considerations on
how risk to organizational operations and assets, individuals, other organizations, and the Nation,is to be managed by senior leaders/executives.
At Tier 1, senior leaders/executives, in consultation and collaboration with the risk executive(function), define the organizational risk frame including the types of risk decisions (e.g., risk
responses) supported, how and under what conditions risk is assessed to support those risk
decisions, and how risk is monitored (e.g., to what level of detail, in what form, and with whatfrequency). At Tier 2, mission/business owners apply their understanding of the organizationalrisk frame to address concerns specific to the organization’s missions/business functions (e.g.,
additional assumptions, constraints, priorities, and trade-offs). At Tier 3, program managers,
information system owners, and common control providers apply their understanding of theorganizational risk frame based on how decision makers at Tiers 1 and 2 choose to manage risk.
The Risk Management Framework61 is the primary means for addressing risk at Tier 3. The RMF
addresses concerns specific to the design, development, implementation, operation, and disposalof organizational information systems and the environments in which those systems operate. The
risk frame can be adapted at Tier 3 based on the current phase of the system development life
cycle, which further constrains potential risk responses. Initially, organizational risk frames might
not be explicit or might not be defined in terms that correspond to the risk management tiers. In
the absence of explicit risk frames (describing assumptions, constraints, risk tolerance, andpriorities/trade-offs), mission/business owners can have divergent perspectives on risk or how tomanage it. This impedes a common understanding at Tier 1 of how information security risk
contributes to organizational risk, and at Tier 2, of how risk accepted for one mission or business
function potentially affects risk with respect to other missions/business functions. Differences inrisk tolerance and the underlying assumptions, constraints, and priorities/trade-offs are grounded
in operational and/or architectural considerations and should be understood and accepted bysenior leaders/executives within their respective organizations.

61

The Risk Management Framework (RMF) which operates primarily at Tier 3 is described in NIST Special
Publication 800-37.

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Organization, Mission, and Information System View________________________________________________________________________________________________STEP 1: RISK FRAMING
Inputs and Preconditions
Risk framing is the set of assumptions, constraints, risk tolerances, and priorities/trade-offs that shape an organization’s
approach for managing risk. Risk framing is informed by the organizational governance structure, financial posture,legal/regulatory environment, investment strategy, culture, and trust relationships established within and amongorganizations. Inputs to the risk framing step include, for example, laws, policies, directives, regulations, contractual
relationships, and financial limitations which impose constraints on potential risk decisions by organizations. Other
inputs to risk framing can include, for example, specific information from organizations to make explicit: (i) the
identification of trust relationships and trust models (see Appendix G) that derive from existing memoranda ofunderstanding or agreement (MOUs or MOAs); and (ii) the identification of the governance structures and processes
that indicate the extent of or limits on decision-making authority for risk decisions that can be delegated to mission orbusiness owners. The key precondition for risk framing is senior leadership commitment to defining an explicit risk
management strategy and holding mission/business owners responsible and accountable for implementing the strategy.
The guidance produced by the risk framing step, and the underlying assumptions, constraints, risk tolerances, andpriorities/trade-offs used to develop that guidance, may be inappropriate to one or more organizational missions orbusiness functions. In addition, the risk environment has the potential to change over time. Thus, the risk management
process allows for feedback to the risk framing step from the other steps in the process, as follows:•

Risk assessment: Information generated during the risk assessment may influence the original assumptions, change
the constraints regarding appropriate risk responses, identify additional tradeoffs, or shift priorities. For example,
the characterization of adversaries (including representative tactics, techniques, and procedures), or sources ofvulnerability information may not be consistent with how some organizations conduct their missions/business
functions; a source of threat/vulnerability information that is useful for one mission/business function could, infact, be useful for others; or organizational guidance on assessing risk under uncertainty may be too onerous, orinsufficiently defined, to be useful for one or more mission/business functions.

•

Risk response: Information uncovered during the development of alternative courses of action could reveal thatrisk framing has removed or failed to uncover some potentially high-payoff alternatives from consideration. Thissituation may challenge organizations to revisit original assumptions or investigate ways to change establishedconstraints.

•

Risk monitoring: Security control monitoring by organizations could indicate that a class of controls, or a specificimplementation of a control, is relatively ineffective, given investments in people, processes, or technology. Thissituation could lead to changes in assumptions about which types of risk responses are preferred by organizations.
Monitoring of the operational environment could reveal changes in the threat landscape (e.g., changes in thetactics, techniques, and procedures observed across all organizational information systems; increasing frequency
and/or intensity of attacks against specific missions/business functions) that cause organizations to revisit original
threat assumptions and/or to seek different sources of threat information. Significant advances in defensive or
proactive operational and technical solutions could generate the need to revisit the investment strategy identified
during the framing step. Monitoring of legal/regulatory environments could also influence changes in assumptions
or constraints. Also, monitoring of risk being incurred might result in the need to reconsider the organizational risk
tolerance if the existing statement of risk tolerance does not appear to match the operational realities.

Activities
RISK ASSUMPTIONSTASK 1-1: Identify assumptions that affect how risk is assessed, responded to, and monitored within theorganization.
Supplemental Guidance: Organizations that identify, characterize, and provide representative examples of threatsources, vulnerabilities, consequences/impacts, and likelihood determinations promote a common terminology andframe of reference for comparing and addressing risks across disparate mission/business areas. Organizations can also
select appropriate risk assessment methodologies, depending on organizational governance, culture, and how divergent
the missions/business functions are within the respective organizations. For example, organizations with highly
centralized governance structures might elect to use a single risk assessment methodology. Organizations with hybrid
governance structures might select multiple risk assessment methodologies for Tier 2, and an additional risk assessment
methodology for Tier 1 that assimilates and harmonizes the findings, results, and observations of the Tier 2 risk
assessments. Alternatively, when autonomy and diversity are central to the organizational culture, organizations could
define requirements for the degree of rigor and the form of results, leaving the choice of specific risk assessment
methodologies to mission/business owners.

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Threat Sources
Threat sources cause events having undesirable consequences or adverse impacts on organizational operations andassets, individuals, other organizations, and the Nation. Threat sources include: (i) hostile cyber/physical attacks; (ii)human errors of omission or commission; or (iii) natural and man-made disasters. For threats due to hostile cyberattacks or physical attacks, organizations provide a succinct characterization of the types of tactics, techniques, andprocedures employed by adversaries that are to be addressed by safeguards and countermeasures (i.e., security controls)
deployed at Tier 1 (organization level), at Tier 2 (mission/business process level), and at Tier 3 (information systemlevel)—making explicit the types of threat-sources that are to be addressed as well as making explicit those not being
addressed by the safeguards/countermeasures. Adversaries can be characterized in terms of threat levels (based oncapabilities, intentions, and targeting) or with additional detail. Organizations make explicit any assumptions about
threat source targeting, intentions, and capabilities. Next, organizations identify a set of representative threat events.
This set of threat events provides guidance on the level of detail with which the events are described. Organizations
also identify conditions for when to consider threat events in risk assessments. For example, organizations can restrictrisk assessments to those threat events that have actually been observed (either internally or externally by partners or
peer organizations) or alternatively, specify that threat events described by credible researchers can also be considered.
Finally, organizations identify the sources of threat information found to be credible and useful (e.g., sector Information
Sharing and Analysis Centers [ISACs]). Trust relationships determine from which partners, suppliers, and customers,
threat information is obtained as well as the expectations placed on those partners, suppliers and customers in
subsequent risk management process steps. By establishing common starting points for identifying threat sources atTier 1, organizations provide a basis for aggregating and consolidating the results of risk assessments at Tier 2(including risk assessments conducted for coalitions of missions and business areas or for common control providers)
into an overall assessment of risk to the organization as a whole. At Tier 2, mission/business owners may identify
additional sources of threat information specific to organizational missions or business functions. These sources are
typically based on: (i) a particular business or critical infrastructure sector (e.g., sector ISAC); (ii) operating
environments specific to the missions or lines of business (e.g., maritime, airspace); and (iii) external dependencies(e.g., GPS or satellite communications). The characterization of threat sources are refined for the missions/business
functions established by organizations—with the results being that some threat sources might not be of concern, whileothers could be described in greater detail. At Tier 3, program managers, information system owners, and common
control providers consider the phase in the system development life cycle to determine the level of detail with which
threats can be considered. Greater threat specificity tends to be available later in the life cycle..
Vulnerabilities
Organizations identify approaches used to characterize vulnerabilities, consistent with the characterization of threatsources and events. Vulnerabilities can be associated with exploitable weakness or deficiencies in: (i) the hardware,
software, or firmware components that compose organizational information systems (or the security controls employedwithin or inherited by those systems; (ii) mission/business processes and enterprise architectures (including embedded
information security architectures) implemented by organizations; or (iii) organizational governance structures orprocesses. Vulnerabilities can also be associated with the susceptibility of organizations to adverse impacts,
consequences, or harm from external sources (e.g., physical destruction of non-owned infrastructure such as electric
power grids). Organizations provide guidance regarding how to consider dependencies on external organizations asvulnerabilities in the risk assessments conducted. The guidance can be informed by the types of trust relationships
established by organizations with external providers. Organizations identify the degree of specificity with which
vulnerabilities are described (e.g., general terms, Common Vulnerability Enumeration [CVE] identifiers, identificationof weak/deficient security controls), giving some representative examples corresponding to representative threats.
Organizational governance structures and processes determine how vulnerability information is shared acrossorganizations. Organizations may also identify sources of vulnerability information found to be credible and useful. At
Tier 2, mission/business owners may choose to identify additional sources of vulnerability information (e.g., a sector
ISAC for information about vulnerabilities specific to that sector). At Tier 3, program managers, information systemowners, and common control providers consider the phase in the system development life cycle—and in particular, thetechnologies included in the system – to determine the level of detail with which vulnerabilities can be considered.
Organizations make explicit any assumptions about the degree of organizational or information system vulnerability to
specific threat sources (by name or by type).
Consequences and Impact
Organizations provide guidance on how to assess impacts to organizational operations (i.e., mission, functions, image,and reputation), organizational assets, individuals, other organizations, and the Nation (e.g., using FIPS 199, CNSS
Instruction 1253, or a more granular approach). Organizations can experience the consequences/impact of adverse
events at the information system level (e.g., failing to perform as required), at the mission/business process level (e.g.,failing to fully meet mission/business objectives), and at the organizational level (e.g., failing to comply with legal or
regulatory requirements, damaging reputation or relationships, or undermining long-term viability). Organizations
determine at Tier 1, which consequences and types of impact are to be considered at Tier 2, the mission/business

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process level. An adverse event can have multiple consequences and different types of impact, at different levels, andin different time frames. For example, the exposure of sensitive information (e.g., personally identifiable information)
by a particular mission/business area (e.g., human resources) can have organization-wide consequences and adverse
impact with regard to reputation damage; the information system consequence/impact for multiple systems of an
attacker more easily overcoming identification and authentication security controls; and the mission/business processconsequence/impact (for one or more mission/business areas) of an attacker falsifying information on which future
decisions are based. To ensure consistency, organizations determine at Tier 1, how consequences/impacts experienced
in different time frames are to be assessed. At Tier 2, mission/business owners may amplify organizational guidance, as
appropriate. The types of consequences and impact considered in risk determinations are identified to provide a basis
for determining, aggregating, and/or consolidating risk results and to facilitate risk communication. Organizations also
provide guidance to Tier 2 and Tier 3 with regard to the extent that risk assessments are to consider the risk to otherorganizations and the Nation. Organization make explicit any assumptions about the degree of impact/consequences
related to specific threat sources (by name or by type) or through specific vulnerabilities (individually or by type).
Likelihood
Organizations can employ a variety of approaches for determining the likelihood of threat events. Some organizations
treat the likelihood that a threat event will occur and the likelihood that, if it occurs, it will result in adverse effects as
separate factors, while other organizations assess threat likelihood as a combination of these factors. In addition, someorganizations prefer quantitative risk assessments while other organizations, particularly when the assessment involves
a high degree of uncertainty, prefer qualitative risk assessments. Likelihood determinations can be based on either
threat assumptions or actual threat data (e.g., historical data on cyber attacks, historical data on earthquakes, or specificinformation on adversary capabilities, intentions, and targeting). When specific and credible threat data is available(e.g., types of cyber attacks, cyber attack trends, frequencies of attacks), organizations can use the empirical data andstatistical analyses to determine more specific probabilities of threat events occurring. Organizations select a method
consistent with organizational culture and risk tolerance. Organizations can also make explicit assumptions concerning
the likelihood that a threat event will result in adverse effects as follows: (i) worst case (i.e., attack will be successful
unless strong, objective reasons to presume otherwise); (ii) best case (i.e., attack will not be successful unless specific,
credible information to the contrary); or (iii) something in between best and worst cases (e.g., the most probable case).
Organizations document any overarching assumptions. Organizations can use empirical data and statistical analyses tohelp inform any of the approaches used to determine the likelihood of threat events occurring. Organizations select amethod consistent with organizational culture, understanding of the operational environment, and risk tolerance.
RISK CONSTRAINTSTASK 1-2: Identify constraints on the conduct of risk assessment, risk response, and risk monitoring
activities within the organization.
Supplemental Guidance: The execution of the risk management process can be constrained in various ways, some ofwhich are direct and obvious, while others are indirect. Financial limitations can constrain the set of risk management
activities directly (e.g., by limiting the total resources available for investments in risk assessments or in safeguards orcountermeasures) or indirectly (e.g., by eliminating activities which, while involving relatively small investments inrisk response, entail curtailing or discarding investments in legacy information systems or information technology).
Organizations might also discover that the need to continue to depend on legacy information systems may constrain therisk management options available to the organization. Constraints can also include legal, regulatory, and/or contractual
requirements. Such constraints can be reflected in organizational policies (e.g., restrictions on outsourcing, restrictions
on and/or requirements for information to be gathered as part of risk monitoring). Organizational culture can impose
indirect constraints on governance changes (e.g., precluding a shift from decentralized to hybrid governance structures)and which security controls are considered by organizations as potential common controls. In particular, organizational
attitudes toward information technology risk that, for example, favor extensive automation and early adoption of newtechnologies can constrain the degree of risk avoidance and perhaps risk mitigation that can be achieved. Any cultural
constraints that limit senior leader/executive (e.g., chief information officer) visibility into organizational information
systems that are beyond their formal authority (e.g. mission-related systems) may impede overall understanding of thecomplexity of information systems environment and the related risks to the organization. At Tier 2, mission/businessowners interpret constraints in light of organizational missions/business functions. Some regulatory constraints may not
apply to particular missions/business functions (e.g., regulations that apply to international operations, when
mission/business areas are restricted to the United States). Alternately, additional requirements may apply (e.g.,
mission/business processes performed jointly with another organization, which imposes contractual constraints). At
Tier 3, information system owners, common control providers, and/or program managers interpret the organizationwide and mission/business function-specific constraints with respect to their systems and environments of operation(e.g., requirements to provide specific security controls are satisfied through common controls).

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Organization, Mission, and Information System View________________________________________________________________________________________________RISK TOLERANCETASK 1-3: Identify the level of risk tolerance for the organization.
Supplemental Guidance: Risk tolerance is the level of risk that organizations are willing to accept in pursuit of strategic
goals and objectives. Organizations define information security-related risk tolerance organization-wide considering all
missions/business functions. Organizations can use a variety of techniques for identifying information security risk
tolerance (e.g., by establishing zones in a likelihood-impact trade space or by using a set of representative scenarios).
Organizations also define tolerance for other types of organizational and operational risks (e.g., financial, risk, safety
risk, compliance risk, or reputation risk). At Tier 2, mission/business owners may have different risk tolerances fromthe organization as a whole. The risk executive (function) provides organizations with ways to resolve such differencesin risk tolerances at Tier 2. The level of residual risk accepted by authorizing officials for information systems or
inherited common controls is within the organizational risk tolerance, and not the individual risk tolerances of thoseauthorizing officials. In addition, organizations provide to Tier 2 and Tier 3, guidance on evaluating risk for specificmission/business processes or information systems and a focus on near-term mission/business effectiveness with thelonger-term, strategic focus of the organizational risk tolerance. See Section 2.3.3 for additional information on risk
tolerance.
PRIORITIES AND TRADE-OFFSTASK 1-4: Identify priorities and trade-offs considered by the organization in managing risk.
Supplemental Guidance: Risk is experienced at different levels, in different forms, and in different time frames. At Tier
1, organizations make trade-offs among and establish priorities for responding to such risks. Organizations tend to havemultiple priorities that at times conflict, which generates potential risk. Approaches employed by organizations for
managing portfolios of risks reflect organizational culture, risk tolerance, as well as risk-related assumptions andconstraints. These approaches are typically embodied in the strategic plans, policies, and roadmaps of organizations
which may indicate preferences for different forms of risk response. For example, organizations may be willing toaccept short-term risk of slightly degraded operations to achieve long-term reduction in information security risk.
However, this trade-off could be unacceptable for one particularly critical mission/business function (e.g., real-time
requirements in many industrial/process control systems). For that high-priority area, a different approach to improving
security may be required including the application of compensating security controls.

Outputs and Post Conditions
The output of the risk framing step is the risk management strategy that identifies how organizations intend to assess,
respond to, and monitor risk over time. The framing step also produces a set of organizational policies, procedures,standards, guidance, and resources covering the following topics: (i) scope of the organizational risk management
process (e.g., organizational entities covered; mission/business functions affected; how risk management activities areapplied within the risk management tiers); (ii) risk assessment guidance including, for example, the characterization of
threat sources, sources of threat information, representative threat events (in particular, adversary tactics, techniques,and procedures), when to consider and how to evaluate threats, sources of vulnerability information, risk assessment
methodologies to be used, and risk assumptions; (iii) risk response guidance including, for example, risk tolerances,risk response concepts to be employed, opportunity costs, trade-offs, consequences of responses, hierarchy ofauthorities, and priorities; (iv) risk monitoring guidance, including, for example, guidance on analysis of monitored risk
factors to determine changes in risk, and monitoring frequency, methods, and reporting; (v) other and risk constraints
on executing risk management activities; and (vi) organizational priorities and trade-offs. Outputs from the risk framing
step serve as inputs to the risk assessment, risk response, and risk monitoring steps.

3.2 ASSESSING RISK
Risk assessment identifies, prioritizes, and estimates risk to organizational operations (i.e.,
mission, functions, image, and reputation), organizational assets, individuals, other organizations,and the Nation, resulting from the operation and use of information systems.62 Risk assessments
use the results of threat and vulnerability assessments to identify and evaluate risk in terms oflikelihood of occurrence and potential adverse impact (i.e., magnitude of harm) to organizations,assets, and individuals. Risk assessments can be conducted at any of the risk management tiers
62
Draft NIST Special Publication 800-30, Revision 1, provides guidance on conducting risk assessments (including
incremental or differential risk assessments) across all three tiers in the multitiered risk management approach.

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with different objectives and utility of the information produced. For example, risk assessments
conducted at Tier 1 or Tier 2 focus on organizational operations, assets, and individuals—whether
comprehensive across mission/business lines or only on those assessments that are cross-cutting
to the particular mission/business line. Organization-wide assessments of risk can be based solely
on the assumptions, constraints, risk tolerances, priorities, and trade-offs established in the risk
framing step (derived primarily from Tier 1 activities) or can be based on risk assessments
conducted across multiple mission/business lines (derived primarily from Tier 2 activities). Risk
assessments conducted at one tier can be used to refine/enhance threat, vulnerability, likelihood,and impact information used in assessments conducted in other tiers. The degree that informationfrom risk assessments can be reused is shaped by the similarity of missions/business functions
and the degree of autonomy that organizational entities or subcomponents have with respect toparent organizations. Organizations that are decentralized can expect to conduct more risk
assessment activities at Tier 2 and, as a result, may have a greater need to communicate within
Tier 2 to identify cross-cutting threats and vulnerabilities. Decentralized organizations can still
benefit from Tier 1 risk assessments and, in particular, the identification of an initial set of threat
and vulnerability sources. Organization-wide risk assessments provide some initial prioritizationof risks for decision makers to consider when entering the risk response step.
Organizations benefit significantly from conducting risk assessments as part of an organizationwide risk management process. However, once risk assessments are complete, it is prudent fororganizations to invest some time in keeping the assessments current. Maintaining currency ofrisk assessments requires support from the risk monitoring step (e.g., observing changes inorganizational information systems and environments of operation or analyzing monitoring
results to maintain awareness of the risk). Keeping risk assessments up to date provides manypotential benefits such as timely, relevant information that enables senior leaders/executives toperform near real-time risk management. Maintaining risk assessments also reduces futureassessment costs and supports ongoing risk monitoring efforts. Organizations may determine that
conducting comprehensive risk assessments as a way of maintaining current risk assessments do
not provide sufficient value. In such situations, organizations consider conducting incremental
and/or differential risk assessments. Incremental risk assessments consider only new information(e.g., the effects of using a new information system on mission/business risk), whereas
differential risk assessments consider how changes affect the overall risk determination.
Incremental or differential risk assessments are useful if organizations require a more targeted
review of risk, seek an expanded understanding of risk, or desire an expanded understanding of
the risk in relation to missions/business functions.
STEP 2: RISK ASSESSMENT
Inputs and Preconditions
Inputs to the risk assessment step from the risk framing step include, for example: (i) acceptable risk assessment
methodologies; (ii) the breadth and depth of analysis employed during risk assessments; (iii) the level of granularity
required for describing threats; (iv) whether/how to assess external service providers; and (v) whether/how to aggregate
risk assessment results from different organizational entities or mission/business functions to the organization as awhole. Organizational expectations regarding risk assessment methodologies, techniques, and/or procedures are shaped
heavily by governance structures, risk tolerance, culture, trust, and life cycle processes. Prior to conducting risk
assessments, organizations understand the fundamental reasons for conducting the assessments and what constitutes
adequate depth and breadth for the assessments. Risk assumptions, risk constraints, risk tolerance, and priorities/tradeoffs defined during the risk framing step shape how organizations use risk assessments—for example, localized
applications of the risk assessments within each of the risk management tiers (i.e., governance, mission/businessprocess, information systems) or global applications of the risk assessments across the entire organization. Risk
assessments can be conducted by organizations even when some of the inputs from the risk framing step have not been
received or preconditions established. However, in those situations, the quality of the risk assessment results may beaffected. In addition to the risk framing step, the risk assessment step can receive inputs from the risk monitoring step,

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especially during mission operations and the operations/maintenance phase of the system development life cycle (e.g.,when organizations discover new threats or vulnerabilities that require an immediate reassessment of risk). The risk
assessment step can also receive inputs from the risk response step (e.g., when organizations are considering the risk of
employing new technology-based solutions as alternatives for risk reduction measures). As courses of action aredeveloped in the risk response step, a differential risk assessment may be needed to evaluate differences that eachcourse of action makes in the overall risk determination.

Activities
THREAT AND VULNERABILITY IDENTIFICATIONTASK 2-1: Identify threats to and vulnerabilities in organizational information systems and the environments
in which the systems operate.
Supplemental Guidance: Threat identification requires an examination of threat sources and events. For examining
threat sources and events, organizations identify threat capabilities, intentions, and targeting information from allavailable sources. Organizations can leverage a number of sources for threat information at strategic or tactical levels.
Threat information generated at any tier can be used to inform or refine the risk-related activities in any other tier. For
example, specific threats (i.e., tactics, techniques, and procedures) identified during Tier 1 threat assessments may
directly affect mission/business process and architectural design decisions at Tier 2. Specific threat information
generated at Tiers 2 and 3 can be used by organizations to refine threat information generated during initial threat
assessments carried out at Tier 1.
Vulnerability identification occurs at all tiers. Vulnerabilities related to organizational governance (e.g., inconsistentdecisions about the relative priorities of mission/business processes, selection of incompatible implementations of
security controls) as well as vulnerabilities related to external dependencies (e.g., electrical power, supply chain,telecommunications), are most effectively identified at Tier 1. However, most vulnerability identification occurs at
Tiers 2 and 3. At Tier 2, process and architecture-related vulnerabilities (e.g., exploitable weaknesses or deficiencies in
mission/business processes, enterprise /information security architectures including embedded information security
architectures) are more likely to be identified. At Tier 3, information system vulnerabilities are the primary focus.
These vulnerabilities are commonly found in the hardware, software, and firmware components of information systems
or in the environments in which the systems operate. Other areas of potential vulnerabilities include vulnerabilities
associated with the definition, application/implementation, and monitoring of processes, procedures and services
related to management, operational, and technical aspects of information security. Vulnerabilities associated witharchitectural design and mission/business processes can have a greater impact on the ability of organizations to
successfully carry out missions and business functions due to the potential impact across multiple information systems
and mission environments. The refined vulnerability assessments conducted at Tiers 2 and 3 are shared withorganizational personnel responsible for assessing risks more strategically. Vulnerability assessments conducted at Tier
2 and Tier 3 have the opportunity to evaluate additional related variables such as location, proximity to other high risk
assets (physical or logical), and resource considerations related to operational environments. Information specific tooperational environments allows for more useful and actionable assessment results. Vulnerability identification can beaccomplished at a per-individual weakness/deficiency level or at a root-cause level. When selecting between
approaches, organizations consider whether the overall objective is identifying each specific instance or symptom of aproblem or understanding the underlying root causes of problems. Understanding specific exploitable weaknesses ordeficiencies is helpful when problems are first identified or when quick fixes are required. This specific understanding
also provides organizations with necessary sources of information for eventually diagnosing potential root causes ofproblems, especially those problems that are systemic in nature.
Organizations with more established enterprise architectures (including embedded information security architectures)and mature life cycle processes have outputs that can be used to inform risk assessment processes. Risk assumptions,constraints, tolerances, priorities, and trade-offs used for developing enterprise architectures and embedded information
security architectures can be useful sources of information for initial risk assessment activities. Risk assessments
conducted to support the development of segment or solution architectures may also serve as information sources forthe identification of threats and vulnerabilities. Another factor influencing threat and vulnerability identification isorganizational culture. Organizations that promote free and open communications and non-retribution for sharing
adverse information tend to foster greater openness from individuals working within those organizations. Frequently,
organizational personnel operating at Tiers 2 and 3 have valuable information and can make meaningful contributionsin the area of threat and vulnerability identification. The culture of organizations influences the willingness of
personnel to communicate potential threat and vulnerability information, which ultimately affects the quality andquantity of the threats/vulnerabilities identified.

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Organization, Mission, and Information System View________________________________________________________________________________________________RISK DETERMINATIONTASK 2-2: Determine the risk to organizational operations and assets, individuals, other organizations, andthe Nation if identified threats exploit identified vulnerabilities.
Supplemental Guidance: Organizations determine risk by considering the likelihood that known threats exploit known
vulnerabilities and the resulting consequences or adverse impacts (i.e., magnitude of harm) if such exploitations occur.
Organizations use threat and vulnerability information together with likelihood and consequences/impact information
to determine risk either qualitatively or quantitatively. Organizations can employ a variety of approaches to determine
the likelihood of threats exploiting vulnerabilities. Likelihood determinations can be based on either threat assumptions
or actual threat information (e.g., historical data on cyber attacks, historical data on earthquakes, or specific information
on adversary capabilities, intentions, and targeting). When specific and credible threat information is available (e.g.,
types of cyber attacks, cyber attack trends, frequencies of attacks), organizations can use empirical data and statisticalanalyses to determine more specific probabilities of threats occurring. Assessment of likelihood can also be influenced
by whether vulnerability identification occurred at the individual weakness or deficiency level or at the root-cause
level. The relative ease/difficulty of vulnerability exploitation, the sophistication of adversaries, and the nature ofoperational environments all influence the likelihood that threats exploit vulnerabilities. Organizations can characterize
adverse impacts by security objective (e.g., loss of confidentiality, integrity, or availability). However, to maximize
usefulness, adverse impact is expressed in or translated into terms of organizational missions, business functions, andstakeholders.
Risk Determination and Uncertainty
Risk determinations require analysis of threat, vulnerability, likelihood, and impact-related information. Organizations
also need to examine mission/business vulnerabilities and threats where safeguards and/or countermeasures do notexist. The nature of the inputs provided to this step (e.g., general, specific, strategic, tactical) directly affects the type of
outputs or risk determinations made. The reliability and accuracy of risk determinations are dependent on the currency,
accuracy, completeness, and integrity of information collected to support the risk assessment process. In addition, thecomponents of risk assessment results that affect reliability and accuracy of risk determinations also affect the amountof uncertainty associated with those risk determinations and subsequent determinations. Organizations also consider
additional insights related to the anticipated time frames associated with particular risks. Time horizons associated withpotential threats can shape future risk responses (e.g., risk may not be a concern if the time horizon for the risk is in the
distant future).
Organizational guidance for determining risk under uncertainty indicates how combinations of likelihood and impact
are combined into a determination of the risk level or risk score/rating. Organizations need to understand the type andamount of uncertainty surrounding risk decisions so that risk determinations can be understood. During the risk framing
step, organizations may have provided guidance on how to analyze risk and how to determine risk when a high degreeof uncertainty exists. Uncertainty is particularly a concern when the risk assessment considers advanced persistent
threats, for which analysis of interacting vulnerabilities may be needed, the common body of knowledge is sparse, andpast behavior may not be predictive.
While threat and vulnerability determinations apply frequently to missions and business functions, the specificrequirements associated with the missions/business functions, including the environments of operation, may lead todifferent assessment results. Different missions, business functions, and environments of operation can lead todifferences in the applicability of specific threat information considered and the likelihood of threats causing potential
harm. Understanding the threat component of the risk assessment requires insight into the particular threats facing
specific missions or business functions. Such awareness of threats includes understanding the capability, intent, andtargeting of particular adversaries. The risk tolerance of organizations and underlying beliefs associated with how therisk tolerance is formed (including the culture within organizations) may shape the perception of impact and likelihoodin the context of identified threats and vulnerabilities.
Even with the establishment of explicit criteria, risk assessments are influenced by organizational culture and thepersonal experiences and accumulated knowledge of the individuals conducting the assessments. As a result, assessorsof risk can reach different conclusions from the same information. This diversity of perspective can enrich the risk
assessment process and provide decision makers with a greater array of information and potentially fewer biases.
However, such diversity may also lead to risk assessments that are inconsistent. Organizationally-defined and applied
processes provide the means to identify inconsistent practices and include processes to identify and resolve suchinconsistencies.

Outputs and Post Conditions
The output of the risk assessment step is a determination of risk to organizational operations (i.e., mission, functions,image, and reputation), organizational assets, individuals, other organizations, and the Nation. Depending on theapproach that organizations take, either the overall risk to the organization or the inputs used to determine risk may be

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communicated to the decision makers responsible for risk response. In certain situations, there are recurring cycles
between the risk assessment step and the risk response step until particular objectives are achieved. Based on the courseof action selected during the risk response step, some residual risk may remain. Under certain circumstances, the levelof residual risk could trigger a reassessment of risk. This reassessment is typically incremental (assessing only the new
information) and differential (assessing how the new information changes the overall risk determination).
The aggregation of risk assessment results from all three tiers drives the management of portfolios of risks undertaken
by organizations. Identified risks common to more than one mission/business function within organizations may also be
the source for future assessment activities at Tier 1, such as root-cause analysis. Gaining a better understanding of thereasons why certain risks are more common or frequent assists decision makers in selecting risk responses that address
underlying (or root-cause) problems instead of solely focusing on the surface issues surrounding the existence of therisks. The results of risk assessments can also shape future design and development decisions related to enterprisearchitecture (including embedded information security architecture), and organizational information systems. The
extent to which missions/business functions are vulnerable to a set of identified threats and the relative ease with whichthose vulnerabilities can be exploited, contribute to the risk-related information provided to senior leaders/executives.
Outputs from the risk assessment step can be useful inputs to the risk framing and risk monitoring steps. For example,
risk determinations can result in revisiting the organizational risk tolerance established during the risk framing step.
Organizations can also choose to use information from the risk assessment step to inform the risk monitoring step. For
example, risk assessments can include recommendations to monitor specific elements of risk (e.g., threat sources) sothat if certain thresholds are crossed, previous risk assessment results can be reviewed and updated, as appropriate.
Particular thresholds established as part of risk monitoring programs can also serve as the basis for reassessments ofrisk. If organizations establish criteria as a part of the risk framing step for when risk assessment results do not warrant
risk responses, then assessment results could be fed directly to the risk monitoring step as a source of input.

3.3 RESPONDING TO RISK
Risk response identifies, evaluates, decides on, and implements appropriate courses of action toaccept, avoid, mitigate, share, or transfer risk to organizational operations and assets, individuals,
other organizations, and the Nation, resulting from the operation and use of information systems.
Identifying and analyzing alternative courses of action63 typically occurs at Tier 1 or Tier 2. Thisis due to the fact that alternative courses of action (i.e., potential risk responses) are evaluated interms of anticipated organization-wide impacts and the ability of organizations to continue tosuccessfully carry out organizational missions and business functions. Decisions to employ risk
response measures organization-wide are typically made at Tier 1, although the decisions are
informed by risk-related information from the lower tiers. At Tier 2, alternative courses of action
are evaluated in terms of anticipated impacts on organizational missions/business functions, theassociated mission/business processes supporting the missions/business functions, and resource
requirements. At Tier 3, alternative courses of action tend to be evaluated in terms of the systemdevelopment life cycle or the maximum amount of time available for implementing the selectedcourse(s) of action. The breadth of potential risk responses is a major factor for whether theactivity is carried out at Tier 1, Tier 2, or Tier 3. Risk decisions are influenced by organizationalrisk tolerance developed as part of risk framing activities at Tier 1. Organizations can implement
risk decisions at any of the risk management tiers with different objectives and utility of
information produced.
STEP 3: RISK RESPONSE
Inputs and Preconditions
Inputs from the risk assessment and risk framing steps include: (i) identification of threat sources and threat events; (ii)identification of vulnerabilities that are subject to exploitation; (iii) estimates of potential consequences and/or impact if
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A course of action is a time-phased or situation-dependent combination of risk response measures. A risk response
measure is a specific action taken to respond to an identified risk. Risk response measures can be separately managed
and can include, for example, the implementation of security controls to mitigate risk, promulgation of security policies
to avoid risk or to accept risk in specific circumstances, and organizational agreements to share or transfer risk.

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threats exploit vulnerabilities; (iv) likelihood estimates that threats exploit vulnerabilities; (v) a determination of risk toorganizational operations (i.e., mission, functions, image, and reputation), organizational assets, individuals, otherorganizations, and the Nation; (vi) risk response guidance from the organizational risk management strategy (seeAppendix H); and (vii) the general organizational directions and guidance on appropriate responses to risk. In addition
to the risk assessment and risk framing steps, the risk response step can receive inputs from the risk monitoring step(e.g., when organizations experience a breach or compromise to their information systems or environments of operationthat require an immediate response to address the incident and reduce additional risk that results from the event). The
risk response step can also receive inputs from the risk framing step (e.g., when organizations are required to deploy
new safeguards and countermeasures in their information systems based on security requirements in new legislation or
OMB policies). The risk framing step also directly shapes the resource constraints associated with selecting anappropriate course of action. Additional preconditions established at the risk framing step may include: (i) constraints
based on architecture and previous investments; (ii) organizational preferences and tolerances; (iii) the expected
effectiveness at mitigating risk (including how effectiveness is measured and monitored); and (iv) the time horizon for
the risk (e.g., current risk, projected risk—that is, a risk expected to arise in the future based on the results of threat
assessments or a planned changes in missions/business functions, enterprise architecture (including information
security architecture), or aspects of legal or regulatory compliance).

Activities
RISK RESPONSE IDENTIFICATIONTASK 3-1: Identify alternative courses of action to respond to risk determined during the risk assessment.
Supplemental Guidance: Organizations can respond to risk in a variety of ways. These include: (i) risk acceptance; (ii)risk avoidance; (iii) risk mitigation; (iv) risk sharing; (v) risk transfer; or (vi) a combination of the above. A course ofaction is a time-phased or situation-dependent combination of risk response measures. For example, in an emergency
situation, organizations might accept the risk associated with unfiltered connection to an external communications
provider for a limited time; then avoid risk by cutting the connection; mitigate risk in the near-term by applying
security controls to search for malware or evidence of unauthorized access to information that occurred during theperiod of unfiltered connection; and finally mitigate risk long-term by applying controls to handle such connections
more securely.
Risk Acceptance
Risk acceptance is the appropriate risk response when the identified risk is within the organizational risk tolerance.
Organizations can accept risk deemed to be low, moderate, or high depending on particular situations or conditions. For
example, organizations with data centers residing in the northeastern portion of the United States may opt to accept therisk of earthquakes based on known likelihood of earthquakes and data center vulnerability to damage by earthquakes.
Organizations accept the fact that earthquakes are possible, but given the infrequency of major earthquakes in that
region of the country, believe it is not cost-effective to address such risk—that is, the organizations have determinedthat risk associated with earthquakes is low. Conversely, organizations may accept substantially greater risk (in themoderate/high range) due to compelling mission, business, or operational needs. For example, federal agencies may
decide to share very sensitive information with first responders who do not typically have access to such information
due to time-sensitive needs to stop pending terrorist attacks, even though the information is not itself perishable withregard to risk through loss of confidentiality. Organizations typically make determinations regarding the general levelof acceptable risk and the types of acceptable risk with consideration of organizational priorities and trade-offs
between: (i) near-term mission/business needs and potential for longer-term mission/business impacts; and (ii)organizational interests and the potential impacts on individuals, other organizations, and the Nation.
Risk Avoidance
Risk avoidance may be the appropriate risk response when the identified risk exceeds the organizational risk tolerance.
Organizations may conduct certain types of activities or employ certain types of information technologies that result inrisk that is unacceptable. In such situations, risk avoidance involves taking specific actions to eliminate the activities ortechnologies that are the basis for the risk or to revise or reposition these activities or technologies in the organizational
mission/business processes to avoid the potential for unacceptable risk. For example, organizations planning to employ
networked connections between two domains, may determine through risk assessments that there is unacceptable riskin establishing such connections. Organizations may also determine that implementing effective safeguards andcountermeasures (e.g., cross-domain solutions) is not practical in the given circumstances. Thus, the organizations
decide to avoid the risk by eliminating the electronic or networked connections and employing an “air gap” with amanual connection processes (e.g., data transfers by secondary storage devices).
Risk Mitigation
Risk mitigation, or risk reduction, is the appropriate risk response for that portion of risk that cannot be accepted,
avoided, shared, or transferred. The alternatives to mitigate risk depend on: (i) the risk management tier and the scope

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governance structures); and (ii) the organizational risk management strategy and associated risk response strategies.
The means used by organizations to mitigate risk can involve a combination of risk response measures across the threetiers. For example, risk mitigation can include common security controls at Tier 1, process re-engineering at Tier 2,
and/or new or enhanced management, operational, or technical safeguards or countermeasures (or some combination of
all three) at Tier 3. Another example of a potential risk requiring mitigation can be illustrated when adversaries gain
access to mobile devices (e.g., laptop computers or personal digital assistants) while users are traveling. Possible risk
mitigation measures include, for example, organizational policies prohibiting transport of mobile devices to certain
areas of the world or procedures for users to obtain a clean mobile device that is never allowed to connect to theorganizational networks.
Risk Sharing or Transfer
Risk sharing or risk transfer is the appropriate risk response when organizations desire and have the means to shift risk
liability and responsibility to other organizations. Risk transfer shifts the entire risk responsibility or liability from one
organization to another organization (e.g., using insurance to transfer risk from particular organizations to insurancecompanies). Risk sharing shifts a portion of risk responsibility or liability to other organizations (usually organizations
that are more qualified to address the risk). It is important to note that risk transfer reduces neither the likelihood ofharmful events occurring nor the consequences in terms of harm to organizational operations and assets, individuals,
other organizations, or the Nation. Risk sharing may be a sharing of liability or a sharing of responsibility for other,adequate risk responses such as mitigation. Therefore, the concept of risk transfer is less applicable in the public sector(e.g., federal, state, local governments) than the private sector, as liability of organizations is generally established bylegislation or policy. As such, self-initiated transfers of risk by public sector organizations (as typified by purchasing
insurance) are generally not possible. Risk sharing often occurs when organizations determine that addressing risk
requires expertise or resources that are better provided by other organizations. For example, an identified risk might be
the physical penetration of perimeters and kinetic attacks by terrorist groups. The organization decides to partner withanother organization sharing the physical facility to take joint responsibility for addressing risk from kinetic attacks.
EVALUATION OF ALTERNATIVESTASK 3-2: Evaluate alternative courses of action for responding to risk.
Supplemental Guidance: The evaluation of alternative courses of action can include: (i) the expected effectiveness inachieving desired risk response (and how effectiveness is measured and monitored); and (ii) anticipated feasibility of
implementation, including, for example, mission/business impact, political, legal, social, financial, technical, andeconomic considerations. Economic considerations include costs throughout the expected period of time during which
the course of action is followed (e.g., cost of procurement, integration into organizational processes at Tier 1 and/orTier 2, information systems at Tier 3, training, and maintenance). During the evaluation of alternative courses of action,
trade-offs can be made explicit between near-term gains in mission/business effectiveness or efficiency and long-termrisk of mission/business harm due to compromise of information or information systems that are providing this nearterm benefit. For example, organizations concerned about the potential for mobile devices (e.g., laptop computers)
being compromised while employees are on travel can evaluate several courses of action including: (i) providing users
traveling to high-risk areas with clean laptops; (ii) removing hard drives from laptops and operate from CDs or DVDs;or (iii) having laptops go through a detailed assessment before being allowed to connect to organizational networks.
The first option is highly effective as returning laptops are never connected to organizational networks. While thesecond option ensures that hard drives cannot be corrupted, it is not quite as effective in that it is still possible that
hardware devices (e.g., motherboards) could have been compromised. The effectiveness of the third option is limitedby the ability of organizations to detect potential insertion of malware into the hardware, firmware, or software. As
such, it is the least effective of the three options. From a cost perspective, the first option is potentially the mostexpensive, depending upon the number of travelers (hence number of travel laptops) required. The second and third
options are considerably less expensive. From a mission and operational perspective, the third option is the bestalternative as users have access to standard laptop configurations including all applications and supporting data needed
to perform tasks supporting missions and business functions. Such applications and data would not be available if thefirst or second option is selected. Ultimately, the evaluation of courses of action is made based on operational
requirements, including information security requirements, needed for near and long term mission/business success.
Budgetary constraints, consistency with investment management strategies, civil liberties, and privacy protection, aresome of the important elements organizations consider when selecting appropriate courses of action. In those instanceswhere organizations only identify a single course of action, then the evaluation is focused on whether the course ofaction is adequate. If the course of action is deemed inadequate, then organizations need to refine the identified courseof action to address the inadequacies or develop another course of action (see Task 3-1).
In summary, a risk verses risk-response trade-off is conducted for each course of action to provide the informationnecessary for: (i) selecting between the courses of action; and (ii) evaluating the courses of action in terms of response
effectiveness, costs, mission/business impact, and any other factors deemed relevant to organizations. Part of risk

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versus risk-response trade-off considers the issue of competing resources. From an organizational perspective, thismeans organizations consider whether the cost (e.g., money, personnel, time) for implementing a given course of action
has the potential to adversely impact other missions or business functions, and if so, to what extent. This is necessary
because organizations have finite resources to employ and many competing missions/business functions across manyorganizational elements. Therefore, organizations assess the overall value of alternative courses of action with regard to
the missions/business functions and the potential risk to each organizational element. Organizations may determine thatirrespective of a particular mission/business function and the validity of the associated risk, there are more importantmissions/business functions that face more significant risks, and hence have a better claim on the limited resources.
RISK RESPONSE DECISIONTASK 3-3: Decide on the appropriate course of action for responding to risk.
Supplemental Guidance: Decisions on the most appropriate course of action include some form of prioritization. Somerisks may be of greater concern than other risks. In that case, more resources may need to be directed at addressing
higher-priority risks than at other lower-priority risks. This does not necessarily mean that the lower-priority risks
would not be addressed. Rather, it could mean that fewer resources might be directed at the lower-priority risks (at least
initially), or that the lower-priority risks would be addressed at a later time. A key part of the risk decision process isthe recognition that regardless of the decision, there still remains a degree of residual risk that must be addressed.
Organizations determine acceptable degrees of residual risk based on organizational risk tolerance and the specific risk
tolerances of particular decision makers. Impacting the decision process are some of the more intangible risk-related
concepts (e.g., risk tolerance, trust, and culture). The specific beliefs and approaches that organizations embrace withrespect to these risk-related concepts affect the course of action selected by decision-makers.
RISK RESPONSE IMPLEMENTATIONTASK 3-4: Implement the course of action selected to respond to risk.
Supplemental Guidance: Once a course of action is selected, organizations implement the associated risk response.
Given the size and complexity of some organizations, the actual implementation of risk response measures may bechallenging. Some risk response measures are tactical in nature (e.g., applying patches to identified vulnerabilities inorganizational information systems) and may be implemented rather quickly. Other risk response measures may be
more strategic in nature and reflect solutions that take much longer to implement. Therefore, organizations apply, andtailor as appropriate to a specific risk response course of action, the risk response implementation considerations in therisk response strategies (part of the risk management strategy developed during the risk framing step). See Appendix H,
Risk Response Strategies.

Outputs and Post Conditions
The output of the risk response step is the implementation of the selected courses of action with consideration for: (i)individuals or organizational elements responsible for the selected risk response measures and specifications ofeffectiveness criteria (i.e., articulation of indicators and thresholds against which the effectiveness of risk response
measures can be judged); (ii) dependencies of each selected risk response measure on other risk response measures;(iii) dependencies of selected risk response measures on other factors (e.g., the implementation of other planned
information technology measures); (iv) timeline for implementation of risk response measures; (v) plans for monitoring
the effectiveness of risk response measures; (vi) identification of risk monitoring triggers; and (vii) interim risk
response measures selected for implementation, if appropriate. There are also ongoing communications and sharing ofrisk-related information with individuals or organizational elements impacted by the risk responses (including potential
actions that may need to be taken by the individuals or organizational elements).
In addition to the risk monitoring step, outputs from the risk response step can be useful inputs to the risk framing andrisk assessment steps. For example, it is possible that the analysis occurring during the evaluation of alternative coursesof action may call into question some aspects of the risk response strategy that is part of the risk management strategy
generated during the risk framing step. In such instances, organizations use that information to inform the risk framing
step with appropriate actions taken to revisit the risk management strategy and its associated risk response strategy.
Organizations might also determine during the evaluation of alternative courses of action for risk response, that some
aspects of the risk assessments are incomplete or incorrect. This information can be used to inform the risk assessment
step possibly resulting in further analysis or reassessments of risk.

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3.4 MONITORING RISK
Risk monitoring provides organizations with the means to: (i) verify compliance;64 (ii) determine
the ongoing effectiveness of risk response measures; and (iii) identify risk-impacting changes toorganizational information systems and environments of operation. Analyzing monitoring results
gives organizations the capability to maintain awareness of the risk being incurred, highlight theneed to revisit other steps in the risk management process, and initiate process improvement
activities as needed.65 Organizations employ risk monitoring tools, techniques, and procedures toincrease risk awareness, helping senior leaders/executives develop a better understanding of theongoing risk to organizational operations and assets, individuals, other organizations, and the
Nation. Organizations can implement risk monitoring at any of the risk management tiers withdifferent objectives and utility of information produced. For example, Tier 1 monitoring activities
might include ongoing threat assessments and how changes in the threat space may affect Tier 2
and Tier 3 activities, including enterprise architectures (with embedded information security
architectures) and organizational information systems. Tier 2 monitoring activities might include,for example, analyses of new or current technologies either in use or considered for future use byorganizations to identify exploitable weaknesses and/or deficiencies in those technologies that
may affect mission/business success. Tier 3 monitoring activities focus on information systems
and might include, for example, automated monitoring of standard configuration settings for
information technology products, vulnerability scanning, and ongoing assessments of security
controls. In addition to deciding on appropriate monitoring activities across the risk managementtiers, organizations also decide how monitoring is to be conducted (e.g., automated or manualapproaches) and the frequency of monitoring activities based on, for example, the frequency withwhich deployed security controls change, critical items on plans of action and milestones, andrisk tolerance.
STEP 4: RISK MONITORING
Inputs and Preconditions
Inputs to this step include implementation strategies for selected courses of action for risk responses and the actual
implementation of selected courses of action. In addition to the risk response step, the risk monitoring step can receive
inputs from the risk framing step (e.g., when organizations become aware of an advanced persistent threat reflecting achange in threat assumptions, this may result in a change in the frequency of follow on monitoring activities). The risk
framing step also directly shapes the resource constraints associated with establishing and implementing anorganization-wide monitoring strategy. In some instances, outputs from the risk assessment step may be useful inputs to
the risk monitoring step. For example, risk assessment threshold conditions (e.g., likelihood of threats exploiting
vulnerabilities) could be input to the risk monitoring step. In turn, organizations could monitor to determine if such
threshold conditions are met. If threshold conditions are met, such information could be used in the risk assessment
step, where it could serve as the basis for an incremental, differential risk assessment or an overall reassessment of risk
to the organization.

Activities
RISK MONITORING STRATEGYTASK 4-1: Develop a risk monitoring strategy for the organization that includes the purpose, type, andfrequency of monitoring activities.

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Compliance verification ensures that organizations have implemented required risk response measures and that
information security requirements derived from and traceable to organizational missions/business functions, federal
legislation, directives, regulations, policies, and standards/guidelines are satisfied.
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Supplemental Guidance: Organizations implement risk monitoring programs: (i) to verify that required risk response
measures are implemented and that information security requirements derived from and traceable to organizational
missions/business functions, federal legislation, directives, regulations, policies, and standards/guidelines, are satisfied(compliance monitoring); (ii) to determine the ongoing effectiveness of risk response measures after the measures havebeen implemented (effectiveness monitoring); and (iii) to identify changes to organizational information systems andthe environments in which the systems operate that may affect risk (change monitoring) including changes in thefeasibility of the ongoing implementation of risk response measures). Determining the purpose of risk monitoring
programs directly impacts the means used by organizations to conduct the monitoring activities and where monitoring
occurs (i.e., at which risk management tiers). Organizations also determine the type of monitoring to be employed,
including approaches that rely on automation or approaches that rely on procedural/manual activities with humanintervention. Finally, organizations determine how often monitoring activities are conducted, balancing value gained
from frequent monitoring with potential for operational disruptions due for example, to interruption of mission/businessprocesses, reduction in operational bandwidth during monitoring, and shift of resources from operations to monitoring.
Monitoring strategies developed at Tier 1 influence and provide direction for similar strategies developed at Tier 2 andTier 3 including the monitoring activities associated with the Risk Management Framework at the information systemlevel.
Monitoring Compliance
Compliance monitoring is employed to ensure that organizations are implementing needed risk response measures.
This includes ensuring that the risk response measures selected and implemented by organizations in response to risk
determinations produced from risk assessments are implemented correctly and operating as intended. Failure to
implement the risk response measures selected by organizations can result in the organizations continuing to be subject
to the identified risk. Compliance monitoring also includes ensuring that risk response measures required by federal
mandates (e.g., legislation, directives, policies, regulations, standards) or organizational mandates (e.g., local policies,
procedures, mission/business requirements) are implemented. Compliance monitoring is the easiest type of monitoringto perform because there are typically a finite set of risk response measures employed by organizations usually in theform of security controls. Such measures are typically well-defined and articulated as an output from the risk response
step. The more challenging part of compliance monitoring is evaluating whether the risk response measures are
implemented correctly (and in some instances continuously). Compliance monitoring also includes, as feasible, analysis
as to why compliance failed. The reason for compliance failure can range from individuals failing to do their jobs
correctly to the risk response measure not functioning as intended. If monitoring indicates a failure in compliance, thenthe response step of the risk management process is revisited. A key element of the feedback to the response step is thefinding from compliance monitoring indicating the reason for the compliance failure. In some instances, compliance
failures can be fixed by simply re-implementing the same risk response measures with little or no change. But in otherinstances, compliance failures are more complicated (e.g., the selected risk response measures are too difficult toimplement or the measures did not function as expected). In such instances, it may be necessary for organizations toreturn to the evaluation and decision portions of the risk response step to develop different risk response measures.
Monitoring Effectiveness
Effectiveness monitoring is employed by organizations to determine if implemented risk response measures haveactually been effective in reducing identified risk to the desired level. Although effectiveness monitoring is different
than compliance monitoring, failure to achieve desired levels of effectiveness may be an indication that risk response
measures have been implemented incorrectly or are not operating as intended. Determining the effectiveness of risk
response measures is generally more challenging than determining whether the measures have been implemented
correctly and are operating as intended (i.e., meeting identified compliance requirements). Risk response measures
implemented correctly and operating as intended do not guarantee an effective reduction of risk. This is primarily dueto: (i) the complexity of operating environments which may generate unintended consequences; (ii) subsequent changes
in levels of risk or associated risk factors (e.g., threats, vulnerabilities, impact, or likelihood); (iii) inappropriate or
incomplete criteria established as an output of the risk response step; and (iv) changes in information systems andenvironments of operation after implementation of risk response measures. This is especially true when organizations
try to determine if more strategic outcomes have been achieved and for more dynamic operating environments. For
example, if the desired outcome for organizations is to be less susceptible to advanced persistent threats, this may bechallenging to measure since these types of threats are, by definition, very difficult to detect. Even when organizations
are able to establish effectiveness criteria, it is often difficult to obtain criteria that are quantifiable. Therefore, it may
become a matter of subjective judgment as to whether the implemented risk response measures are ultimately effective.
Moreover, even if quantifiable effectiveness criteria are provided, it may be difficult to determine if the information
provided satisfies the criteria. If organizations determine that risk response measures are not effective, then it may benecessary to return to the risk response step. Generally, for effectiveness failures, organizations cannot simply return tothe implementation portion of the risk response step. Therefore, depending on the reason for the lack of effectiveness,organizations revisit all portions of the risk response step (i.e., development, evaluation, decision, and implementation)and potentially the risk assessment step. These activities may result in organizations developing and implementing
entirely new risk responses.

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Monitoring Changes
In addition to compliance monitoring and effectiveness monitoring, organizations monitor changes to organizational
information systems and the environments in which those systems operate. Monitoring changes to information systems
and environments of operation is not linked directly to previous risk response measures but it is nonetheless important
to detect changes that may affect the risk to organizational operations and assets, individuals, other organizations, andthe Nation. Generally, such monitoring detects changes in conditions that may undermine risk assumptions (articulated
in the risk framing step).
•

Information System: Changes can occur in organizational information systems (including hardware, software, andfirmware) that can introduce new risk or change existing risk. For example, updates to operating system software
can eliminate security capabilities that existed in earlier versions, thus introducing new vulnerabilities into
organizational information systems. Another example is the discovery of new system vulnerabilities that falloutside of the scope of the tools and processes available to address such vulnerabilities (e.g., vulnerabilities forwhich there are no established mitigations).

•

Environments of Operation: The environments in which information systems operate can also change in ways that
introduce new risk or change existing risk. Environmental and operational considerations include, but are notlimited to, missions/business functions, threats, vulnerabilities, mission/business processes, facilities, policies,
legislation, and technologies. For example, new legislation or regulations could be passed that impose additional
requirements on organizations. This change might affect the risk assumptions established by organizations.
Another example is a change in the threat environment that reports new tactics, techniques, procedures, orincreases in the technical capabilities of adversaries. Organizations might experience reductions in available
resources (e.g., personnel or funding), which in turn results in changing priorities. Organizations might also
experience changes in the ownership of third-party suppliers which could affect supply chain risk. Mission
changes may require that organizations revisit underlying risk assumptions. For example, an organization whose
mission is to collect threat information on possible domestic terrorist attacks and share such information withappropriate federal law enforcement and intelligence agencies may have its scope changed so that the organizationis responsible for also sharing some of the information with local first responders. Such a change could affectassumptions regarding the security resources such users may have at their disposal. Changes in technology may
also affect the underlying risk assumptions established by organizations. Unlike other types of change, technology
changes may be totally independent of organizations, but still affect the risk organizations must address. For
example, improvements in computing power may undermine assumptions regarding what constitutes sufficiently
strong means of authentication (e.g., number of authentication factors) or cryptographic mechanism.

Automated Versus Manual Monitoring
Broadly speaking, organizations can conduct monitoring either by automated or manual methods. Where automatedmonitoring is feasible, it should be employed because it is generally faster, more efficient, and more cost-effective thanmanual monitoring. Automated monitoring is also less prone to human error. However, not all monitoring can takeadvantage of automation. Monitoring conducted at Tier 3 generally lends itself to automation where activities being
monitored are information technology-based. Such activities can usually be detected, tracked, and monitored throughthe installation of appropriate software, hardware and/or firmware. To ensure that automated processes, procedures,
and/or mechanisms supporting monitoring activities are providing the information needed, such processes, procedures,and mechanisms should be appropriately validated, updated and monitored. Compliance monitoring can be supported
by automation when the risk mitigation measures being validated are information technology-based (e.g., installation of
firewalls or testing of configuration settings on desktop computers). Such automated validation can often check
whether risk mitigation measures are installed and whether the installations are correct. Similarly, effectivenessmonitoring may also be supported by automation. If the threshold conditions for determining the effectiveness of risk
response measures are predetermined, then automation can support such effectiveness monitoring. While automation
can be a supporting capability for Tiers 1 and 2, generally automation does not provide substantive insight for noninformation technology-based activities which are more prevalent at those higher tiers. Activities that are not as likely
to benefit from automation include, for example, the use of multiple suppliers within the supply chain, evolving
environments of operation, or evaluating the promise of emerging technical capabilities in support of missions/business
functions. Where automated monitoring is not available, organizations employ manual monitoring and/or analysis.
Frequency of Monitoring
The frequency of risk monitoring (whether automated or manual) is driven by organizational missions/business
functions and the ability of organizations to use the monitoring results to facilitate greater situational awareness. An
increased level of situational awareness of the security state of organizational information systems and environments ofoperation helps organizations develop a better understanding of risk. Monitoring frequency is also driven by otherfactors, for example: (i) the anticipated frequency of changes in organizational information systems and operating
environments; (ii) the potential impact of risk if not properly addressed through appropriate response measures; and(iii) the degree to which the threat space is changing. The frequency of monitoring can also be affected by the type ofmonitoring conducted (i.e., automated versus procedural approaches). Depending on the frequency of monitoring

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required by organizations, in most situations, monitoring is most efficient and cost-effective when automation is
employed. Monitoring can provide significant benefits, especially in situations where such monitoring limits theopportunities for adversaries to gain a foothold within organizations (either through information systems or theenvironments in which those systems operate). When manual monitoring is employed by organizations, it is generally
not efficient to perform the monitoring with the frequency that automation allows. In some instances, infrequentmonitoring is not a major issue. For example, missions/business functions, facilities, legislation, policies, andtechnologies tend to change on a more gradual basis and as such, do not lend themselves to frequent monitoring.
Instead, these types of changes are better suited to condition/event-based monitoring (e.g., if missions and/or business
functions change, then monitoring of such changes is appropriate to determine if the changes have any impact on risk).
RISK MONITORINGTASK 4-2: Monitor organizational information systems and environments of operation on an ongoing basis toverify compliance, determine effectiveness of risk response measures, and identify changes.
Supplemental Guidance: Once organizations complete the development of their monitoring strategies, the strategies are
implemented organization-wide. Because there are so many diverse aspects of monitoring, not all aspects of monitoring
may be performed, or they may be performed at different times. The particular aspects of monitoring that are performed
are dictated largely by the assumptions, constraints, risk tolerance, and priorities/trade-offs established by organizations
during the risk framing step. For example, while organizations might desire to conduct all forms of monitoring (i.e.,compliance, effectiveness, and change), the constraints imposed upon the organizations may allow only compliancemonitoring that can be readily automated at Tier 3. If multiple aspects of monitoring can be supported, the output fromthe risk framing step helps organizations to determine the degree of emphasis and level of effort to place on the various
monitoring activities.
As noted above, not all monitoring activities are conducted at the same tiers, for the same purpose, at the same time, orusing the same techniques. However, it is important that organizations attempt to coordinate the various monitoring
activities. Coordination of monitoring activities facilitates the sharing of risk-related information that may be useful fororganizations in providing early warning, developing trend information, or allocating risk response measures in atimely and efficient manner. If monitoring is not coordinated, then the benefit of monitoring may be reduced, and could
undermine the overall effort to identify and address risk. As feasible, organizations implement the various monitoring
activities in a manner that maximizes the overall goal of monitoring, looking beyond the limited goals of particularmonitoring activities. Risk monitoring results are applied in performing incremental risk assessments to maintainawareness of the risk being incurred, to highlight changes in risk, and to indicate the need to revisit other steps in therisk management process, as appropriate.

Outputs and Post Conditions
The output from the risk monitoring step is the information generated by: (i) verifying that required risk response
measures are implemented and that information security requirements derived from and traceable to organizational
missions/business functions, federal legislation, directives, regulations, policies, and standards/guidelines, are satisfied;(ii) determining the ongoing effectiveness of risk response measures; and (iii) identifying changes to organizational
information systems and environments of operation. Outputs from the risk monitoring step can be useful inputs to therisk framing, risk assessment, and risk response steps. For example, compliance monitoring results may require thatorganizations revisit the implementation portion of the risk response step, while effectiveness monitoring results may
require that organizations revisit the entire risk response step. The results of monitoring for changes to information
systems and environments of operation may require organizations to revisit the risk assessment step. The results of therisk monitoring step can also serve the risk framing step (e.g., when organizations discover new threats orvulnerabilities that affect changes in organizational risk assumptions, risk tolerance, and/or priorities/trade-offs).

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APPENDIX AREFERENCES
LAWS, POLICIES, DIRECTIVES, INSTRUCTIONS, STANDARDS, AND GUIDELINESLEGISLATION

1.

E-Government Act [includes FISMA] (P.L. 107-347), December 2002.

2.

Federal Information Security Management Act (P.L. 107-347, Title III), December 2002.
POLICIES, DIRECTIVES, INSTRUCTIONS

1.

Committee on National Security Systems (CNSS) Instruction 4009, National Information
Assurance (IA) Glossary, April 2010.

2.

Committee on National Security Systems (CNSS) Instruction 1253, Security
Categorization and Control Selection for National Security Systems, October 2009.

3.

Office of Management and Budget, Circular A-130, Appendix III, Transmittal
Memorandum #4, Management of Federal Information Resources, November 2000.
STANDARDS

1.

National Institute of Standards and Technology Federal Information Processing
Standards Publication 199, Standards for Security Categorization of Federal Information
and Information Systems, February 2004.

2.

National Institute of Standards and Technology Federal Information Processing
Standards Publication 200, Minimum Security Requirements for Federal Information andInformation Systems, March 2006.

3.

ISO/IEC 15408:2005, Common Criteria for Information Technology Security Evaluation,
2005.
GUIDELINES

1.

National Institute of Standards and Technology Special Publication 800-18, Revision 1,
Guide for Developing Security Plans for Federal Information Systems, February 2006.

2.

National Institute of Standards and Technology Special Publication 800-30, Revision 1,
Guide for Conducting Risk Assessments, (Projected Publication Spring 2011).

3.

National Institute of Standards and Technology Special Publication 800-37, Revision 1,
Guide for Applying the Risk Management Framework to Federal Information Systems: A
Security Life Cycle Approach, February 2010.

4.

National Institute of Standards and Technology Special Publication 800-53, Revision 3,
Recommended Security Controls for Federal Information Systems and Organizations,
August 2009.

5.

National Institute of Standards and Technology Special Publication 800-53A, Revision 1,
Guide for Assessing the Security Controls in Federal Information Systems andOrganizations: Building Effective Security Assessment Plans, June 2010.

6.

National Institute of Standards and Technology Special Publication 800-59, Guideline for
Identifying an Information System as a National Security System, August 2003.

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7.

National Institute of Standards and Technology Special Publication 800-60, Revision 1,
Guide for Mapping Types of Information and Information Systems to Security Categories,
August 2008.

8.

National Institute of Standards and Technology Special Publication 800-70, Revision 1,
National Checklist Program for IT Products--Guidelines for Checklist Users andDevelopers, September 2009.

9.

National Institute of Standards and Technology Special Publication 800-137, Initial
Public Draft, Information Security Continuous Monitoring for Federal Information
Systems and Organizations, December 2010.

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APPENDIX BGLOSSARYCOMMON TERMS AND DEFINITIONST

his appendix provides definitions for security terminology used within Special Publication
800-39. The terms in the glossary are consistent with the terms used in the suite of
FISMA-related security standards and guidelines developed by NIST. Unless otherwise
stated, all terms used in this publication are also consistent with the definitions contained in the
CNSS Instruction 4009, National Information Assurance (IA) Glossary.
Adequate Security[OMB Circular A-130, Appendix III]

Security commensurate with the risk and magnitude ofharm resulting from the loss, misuse, or unauthorizedaccess to or modification of information.

Advanced Persistent Threat

An adversary that possesses sophisticated levels of
expertise and significant resources which allow it tocreate opportunities to achieve its objectives by using
multiple attack vectors (e.g., cyber, physical, anddeception). These objectives typically include
establishing and extending footholds within theinformation technology infrastructure of the targetedorganizations for purposes of exfiltrating information,
undermining or impeding critical aspects of a mission,
program, or organization; or positioning itself to carry out
these objectives in the future. The advanced persistent
threat: (i) pursues its objectives repeatedly over an
extended period of time; (ii) adapts to defenders’ efforts
to resist it; and (iii) is determined to maintain the level ofinteraction needed to execute its objectives.

AgencySee Executive Agency.

Assessment

See Security Control Assessment.

Assessor

See Security Control Assessor.

Assurance

Measure of confidence that the security features,practices, procedures, and architecture of an information
system accurately mediates and enforces the security
policy.
Grounds for confidence that the set of intended security
controls in an information system are effective in theirapplication.

[CNSSI 4009][NIST SP 800-53]

Assurance Case
[Software Engineering Institute,Carnegie Mellon University]

Authentication[FIPS 200]

APPENDIX B

A structured set of arguments and a body of evidence
showing that an information system satisfies specificclaims with respect to a given quality attribute.
Verifying the identity of a user, process, or device, often
as a prerequisite to allowing access to resources in an
information system.

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Authenticity

The property of being genuine and being able to beverified and trusted; confidence in the validity of atransmission, a message, or message originator. See
Authentication.

Authorization(to operate)

The official management decision given by a seniororganizational official to authorize operation of an
information system and to explicitly accept the risk toorganizational operations (including mission, functions,image, or reputation), organizational assets, individuals,
other organizations, and the Nation based on theimplementation of an agreed-upon set of security
controls.

Authorization Boundary

All components of an information system to beauthorized for operation by an authorizing official andexcludes separately authorized systems, to which theinformation system is connected.

[NIST SP 800-37]

Authorizing Official[CNSSI 4009]

Availability[44 U.S.C., Sec. 3542]

Chief Information Officer[PL 104-106, Sec. 5125(b)]Senior (federal) official or executive with the authority toformally assume responsibility for operating an
information system at an acceptable level of risk toorganizational operations (including mission, functions,image, or reputation), organizational assets, individuals,
other organizations, and the Nation.
Ensuring timely and reliable access to and use of
information.
Agency official responsible for:(i) Providing advice and other assistance to the head ofthe executive agency and other senior management
personnel of the agency to ensure that information
technology is acquired and information resources aremanaged in a manner that is consistent with laws,
Executive Orders, directives, policies, regulations, andpriorities established by the head of the agency;(ii) Developing, maintaining, and facilitating theimplementation of a sound and integrated information
technology architecture for the agency; and(iii) Promoting the effective and efficient design andoperation of all major information resources management
processes for the agency, including improvements towork processes of the agency.

Chief Information Security Officer

See Senior Agency Information Security Officer.

Classified National Security
Information

Information that has been determined pursuant to Executive
Order 13526 or any predecessor order to require protection
against unauthorized disclosure and is marked to indicate its
classified status when in documentary form.

[CNSSI 4009]

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Common Control[NIST SP 800-37]

Common Control Provider[NIST SP 800-37]

Compensating Security Control[CNSSI 4009]

Confidentiality[44 U.S.C., Sec. 3542]

A security control that is inherited by one or moreorganizational information systems. See Security Control
Inheritance.
An organizational official responsible for thedevelopment, implementation, assessment, andmonitoring of common controls (i.e., security controls
inherited by information systems).
A management, operational, and/or technical control (i.e.,
safeguard or countermeasure) employed by anorganization in lieu of a recommended security control in
the low, moderate, or high baselines that provides
equivalent or comparable protection for an information
system.
Preserving authorized restrictions on information accessand disclosure, including means for protecting personalprivacy and proprietary information.

Course of Action (Risk Response)

A time-phased or situation-dependent combination of risk
response measures.

Cyber Attack

An attack, via cyberspace, targeting an enterprise’s use of
cyberspace for the purpose of disrupting, disabling,
destroying, or maliciously controlling a computing
environment/infrastructure; or destroying the integrity ofthe data or stealing controlled information.

[CNSSI 4009]

Cyber Security[CNSSI 4009]

Cyberspace[CNSSI 4009]

Defense-in-Breadth[CNSSI 4009]

Defense-in-Depth[CNSSI 4009]

APPENDIX B

The ability to protect or defend the use of cyberspacefrom cyber attacks.
A global domain within the information environment
consisting of the interdependent network of information
systems infrastructures including the Internet,
telecommunications networks, computer systems, andembedded processors and controllers.
A planned, systematic set of multidisciplinary activities
that seek to identify, manage, and reduce risk of
exploitable vulnerabilities at every stage of the system,
network, or subcomponent life cycle (system, network, or
product design and development; manufacturing;packaging; assembly; system integration; distribution;
operations; maintenance; and retirement).
Information security strategy integrating people,
technology, and operations capabilities to establish
variable barriers across multiple layers and missions of
the organization.

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Enterprise[CNSSI 4009]

Enterprise Architecture[CNSSI 4009]

Environment of Operation[NIST SP 800-37]

Executive Agency[41 U.S.C., Sec. 403]

An organization with a defined mission/goal and adefined boundary, using information systems to executethat mission, and with responsibility for managing its
own risks and performance. An enterprise may consist of
all or some of the following business aspects: acquisition,
program management, financial management (e.g.,budgets), human resources, security, and information
systems, information and mission management. See
Organization.
The description of an enterprise’s entire set of
information systems: how they are configured, how they
are integrated, how they interface to the external
environment at the enterprise’s boundary, how they areoperated to support the enterprise mission, and how they
contribute to the enterprise’s overall security posture.
The physical surroundings in which an information
system processes, stores, and transmits information.
An executive department specified in 5 U.S.C., Sec. 101;a military department specified in 5 U.S.C., Sec. 102; anindependent establishment as defined in 5 U.S.C., Sec.
104(1); and a wholly owned Government corporation
fully subject to the provisions of 31 U.S.C., Chapter 91.

Federal Agency

See Executive Agency.

Federal Information
SystemAn information system used or operated by an executive
agency, by a contractor of an executive agency, or byanother organization on behalf of an executive agency.

[40 U.S.C., Sec. 11331]

Hybrid Security Control[NIST SP 800-53]

A security control that is implemented in an information
system in part as a common control and in part as asystem-specific control. See Common Control andSystem-Specific Security Control.

Individuals

An assessment object that includes people applying
specifications, mechanisms, or activities.

Industrial Control System

An information system used to control industrial
processes such as manufacturing, product handling,
production, and distribution. Industrial control systems
include supervisory control and data acquisition systems
used to control geographically dispersed assets, as well as
distributed control systems and smaller control systems
using programmable logic controllers to control localized
processes.

Information

Any communication or representation of knowledge suchas facts, data, or opinions in any medium or form,
including textual, numerical, graphic, cartographic,
narrative, or audiovisual.
An instance of an information type.

[CNSSI 4009][FIPS 199]

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Information Owner[CNSSI 4009]

Information Resources[44 U.S.C., Sec. 3502]

Information Security[44 U.S.C., Sec. 3542]

Official with statutory or operational authority forspecified information and responsibility for establishing
the controls for its generation, classification, collection,
processing, dissemination, and disposal. See Information
Steward.
Information and related resources, such as personnel,
equipment, funds, and information technology.
The protection of information and information systems
from unauthorized access, use, disclosure, disruption,
modification, or destruction in order to provide
confidentiality, integrity, and availability.

Information Security Architecture

An embedded, integral part of the enterprise architecturethat describes the structure and behavior for an
enterprise’s security processes, information security
systems, personnel and organizational sub-units, showing
their alignment with the enterprise’s mission and strategicplans.

Information Security Program Plan

Formal document that provides an overview of the
security requirements for an organization-wide
information security program and describes the program
management controls and common controls in place orplanned for meeting those requirements.

[NIST SP 800-53]

Information Steward[CNSSI 4009]

Information System

An agency official with statutory or operational authority
for specified information and responsibility forestablishing the controls for its generation, collection,
processing, dissemination, and disposal.

[44 U.S.C., Sec. 3502]

A discrete set of information resources organized for thecollection, processing, maintenance, use, sharing,
dissemination, or disposition of information.

Information System Boundary

See Authorization Boundary.

Information System Owner(or Program Manager)

Official responsible for the overall procurement,
development, integration, modification, or operation andmaintenance of an information system.

Information System Resilience

The ability of an information system to continue to: (i)operate under adverse conditions or stress, even if in adegraded or debilitated state, while maintaining essential
operational capabilities; and (ii) recover to an effective
operational posture in a time frame consistent withmission needs.

Information System
Security Officer

Individual assigned responsibility by the senior agency
information security officer, authorizing official,management official, or information system owner for
maintaining the appropriate operational security posture
for an information system or program.

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Information Security Risk

The risk to organizational operations (including mission,functions, image, reputation), organizational assets,
individuals, other organizations, and the Nation due to thepotential for unauthorized access, use, disclosure,disruption, modification, or destruction of information
and/or information systems.

Information System-Related
Security Risks

Risks that arise through the loss of confidentiality,
integrity, or availability of information or information
systems and consider impacts to the organization(including assets, mission, functions, image, or
reputation), individuals, other organizations, and the
Nation. See Risk.

Information Technology

Any equipment or interconnected system or subsystem ofequipment that is used in the automatic acquisition,
storage, manipulation, management, movement, control,
display, switching, interchange, transmission, or
reception of data or information by the executive agency.
For purposes of the preceding sentence, equipment isused by an executive agency if the equipment is used by
the executive agency directly or is used by a contractor
under a contract with the executive agency which: (i)requires the use of such equipment; or (ii) requires theuse, to a significant extent, of such equipment in theperformance of a service or the furnishing of a product.
The term information technology includes computers,
ancillary equipment, software, firmware, and similar
procedures, services (including support services), andrelated resources.

[40 U.S.C., Sec. 1401]

Information Type[FIPS 199]

Integrity[44 U.S.C., Sec. 3542]

Management Controls[FIPS 200]

APPENDIX B

A specific category of information (e.g., privacy,
medical, proprietary, financial, investigative, contractor
sensitive, security management) defined by anorganization or in some instances, by a specific law,
Executive Order, directive, policy, or regulation.
Guarding against improper information modification or
destruction, and includes ensuring information nonrepudiation and authenticity.
The security controls (i.e., safeguards orcountermeasures) for an information system that focus on
the management of risk and the management of
information system security.

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National Security System[44 U.S.C., Sec. 3542]

Operational Controls[FIPS 200]

Organization[FIPS 200, Adapted]

Plan of Action andMilestones[OMB Memorandum 02-01]

Any information system (including any
telecommunications system) used or operated by anagency or by a contractor of an agency, or otherorganization on behalf of an agency (i) the function,
operation, or use of which involves intelligence activities;
involves cryptologic activities related to national security;
involves command and control of military forces;
involves equipment that is an integral part of a weapon or
weapons system; or is critical to the direct fulfillment ofmilitary or intelligence missions (excluding a system thatis to be used for routine administrative and businessapplications, for example, payroll, finance, logistics, andpersonnel management applications); or (ii) is protected
at all times by procedures established for information thathave been specifically authorized under criteria
established by an Executive Order or an Act of Congress
to be kept classified in the interest of national defense orforeign policy.
The security controls (i.e., safeguards orcountermeasures) for an information system that areprimarily implemented and executed by people (asopposed to systems).
An entity of any size, complexity, or positioning within
an organizational structure (e.g., a federal agency or, as
appropriate, any of its operational elements). See
Enterprise.
A document that identifies tasks needing to beaccomplished. It details resources required to accomplish
the elements of the plan, any milestones in meeting thetasks, and scheduled completion dates for the milestones.

Reciprocity

Mutual agreement among participating organizations to
accept each other’s security assessments in order to reuse
information system resources and/or to accept eachother’s assessed security posture in order to share
information.

Resilience

See Information System Resilience.

Risk

A measure of the extent to which an entity is threatenedby a potential circumstance or event, and typically afunction of: (i) the adverse impacts that would arise if thecircumstance or event occurs; and (ii) the likelihood of
occurrence.

[CNSSI 4009][Note: Information system-related security risks are those risks thatarise from the loss of confidentiality, integrity, or availability of
information or information systems and reflect the potential adverse
impacts to organizational operations (including mission, functions,image, or reputation), organizational assets, individuals, otherorganizations, and the Nation.]

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Organization, Mission, and Information System View________________________________________________________________________________________________

Risk Assessment

The process of identifying risks to organizational
operations (including mission, functions, image,
reputation), organizational assets, individuals, otherorganizations, and the Nation, resulting from theoperation of an information system.
Part of risk management, incorporates threat andvulnerability analyses, and considers mitigations
provided by security controls planned or in place.
Synonymous with risk analysis.

Risk Executive (Function)

An individual or group within an organization that helps
to ensure that: (i) security risk-related considerations forindividual information systems, to include theauthorization decisions for those systems, are viewed
from an organization-wide perspective with regard to theoverall strategic goals and objectives of the organizationin carrying out its missions and business functions; and(ii) managing risk from individual information systems is
consistent across the organization, reflects organizationalrisk tolerance, and is considered along with otherorganizational risks affecting mission/business success.

[CNSSI 4009]

Risk Management[CNSSI 4009, adapted]

Risk Mitigation[CNSSI 4009]

The program and supporting processes to manage
information security risk to organizational operations(including mission, functions, image, reputation),organizational assets, individuals, other organizations,and the Nation, and includes: (i) establishing the context
for risk-related activities; (ii) assessing risk; (iii)
responding to risk once determined; and (iv) monitoringrisk over time.
Prioritizing, evaluating, and implementing theappropriate risk-reducing controls/countermeasures
recommended from the risk management process.

Risk Monitoring

Maintaining ongoing awareness of an organization’s risk
environment, risk management program, and associatedactivities to support risk decisions.

Risk Response

Accepting, avoiding, mitigating, sharing, or transferringrisk to organizational operations (i.e., mission, functions,image, or reputation), organizational assets, individuals,
other organizations, or the Nation.

Risk Response Measure

A specific action taken to respond to an identified risk.

Root Cause Analysis

A principle-based, systems approach for the identificationof underlying causes associated with a particular set ofrisks.

Security Authorization(to Operate)

See Authorization (to operate).

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Security Categorization

The process of determining the security category for
information or an information system. Security
categorization methodologies are described in CNSS
Instruction 1253 for national security systems and in
FIPS 199 for other than national security systems.

Security Control Assessment

The testing and/or evaluation of the management,
operational, and technical security controls to determine
the extent to which the controls are implemented
correctly, operating as intended, and producing thedesired outcome with respect to meeting the security
requirements for an information system or organization.

[CNSSI 4009, Adapted]

Security Control Assessor

The individual, group, or organization responsible for
conducting a security control assessment.

Security Control Baseline

The set of minimum security controls defined for a lowimpact, moderate-impact, or high-impact information
system.

[CNSSI 4009]

Security Control Enhancements

Statements of security capability to: (i) build in
additional, but related, functionality to a basic control;
and/or (ii) increase the strength of a basic control.

Security Control Inheritance

A situation in which an information system or application
receives protection from security controls (or portions of
security controls) that are developed, implemented,
assessed, authorized, and monitored by entities other thanthose responsible for the system or application; entities
either internal or external to the organization where thesystem or application resides. See Common Control.

[CNSSI 4009]

Security Controls[FIPS 199, CNSSI 4009]

The management, operational, and technical controls(i.e., safeguards or countermeasures) prescribed for an
information system to protect the confidentiality,
integrity, and availability of the system and its
information.

[NIST SP 800-37]

The analysis conducted by an organizational official todetermine the extent to which changes to the information
system have affected the security state of the system.

Security Objective

Confidentiality, integrity, or availability.

Security Impact Analysis[FIPS 199]

Security Plan[NIST SP 800-18]

Security Policy

Formal document that provides an overview of the
security requirements for an information system or an
information security program and describes the security
controls in place or planned for meeting thoserequirements.
See System Security Plan or Information Security
Program Plan.
A set of criteria for the provision of security services.

[CNSSI 4009]

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Security Requirements[FIPS 200]

Senior Agency
Information Security
Officer[44 U.S.C., Sec. 3544]

Requirements levied on an information system that arederived from applicable laws, Executive Orders,
directives, policies, standards, instructions, regulations,procedures, or organizational mission/business case needs
to ensure the confidentiality, integrity, and availability of
the information being processed, stored, or transmitted.
Official responsible for carrying out the Chief
Information Officer responsibilities under FISMA andserving as the Chief Information Officer’s primary liaison
to the agency’s authorizing officials, information systemowners, and information system security officers.
[Note: Organizations subordinate to federal agencies may use the term
Senior Information Security Officer or Chief Information Security
Officer to denote individuals filling positions with similar
responsibilities to Senior Agency Information Security Officers.]

Senior Information Security
Officer

See Senior Agency Information Security Officer.

Subsystem

A major subdivision or component of an information
system consisting of information, information
technology, and personnel that performs one or more
specific functions.

Supplementation (Security
Controls)

The process of adding security controls or control
enhancements to a security control baseline from NIST
Special Publication 800-53 or CNSS Instruction 1253 inorder to adequately meet the organization’s risk
management needs.

SystemSee Information System.

System Security Plan

Formal document that provides an overview of the
security requirements for an information system anddescribes the security controls in place or planned formeeting those requirements.

[NIST SP 800-18]

System-Specific Security Control[NIST SP 800-37]

Tailoring[NIST SP 800-53, CNSSI 4009]

Tailored Security Control Baseline

APPENDIX B

A security control for an information system that has notbeen designated as a common control or the portion of a
hybrid control that is to be implemented within an
information system.
The process by which a security control baseline ismodified based on: (i) the application of scoping
guidance; (ii) the specification of compensating security
controls, if needed; and (iii) the specification oforganization-defined parameters in the security controls
via explicit assignment and selection statements.
A set of security controls resulting from the applicationof tailoring guidance to the security control baseline. See
Tailoring.

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Technical Controls[FIPS 200]

Threat[CNSSI 4009]

Threat Assessment[CNSSI 4009]

Threat Source[CNSSI 4009]

Trustworthiness[CNSSI 4009]

Vulnerability[CNSSI 4009]

Vulnerability Assessment[CNSSI 4009]

APPENDIX B

Security controls (i.e., safeguards or countermeasures) for
an information system that are primarily implemented
and executed by the information system throughmechanisms contained in the hardware, software, or
firmware components of the system.
Any circumstance or event with the potential to adversely
impact organizational operations (including mission,functions, image, or reputation), organizational assets,
individuals, other organizations, or the Nation through an
information system via unauthorized access, destruction,
disclosure, modification of information, and/or denial ofservice.
Process of formally evaluating the degree of threat to an
information system or enterprise and describing thenature of the threat.
The intent and method targeted at the intentional
exploitation of a vulnerability or a situation and methodthat may accidentally exploit a vulnerability.
The attribute of a person or enterprise that provides
confidence to others of the qualifications, capabilities,
and reliability of that entity to perform specific tasks andfulfill assigned responsibilities.
Weakness in an information system, system security
procedures, internal controls, or implementation that
could be exploited by a threat source.
Systematic examination of an information system or
product to determine the adequacy of security measures,
identify security deficiencies, provide data from which topredict the effectiveness of proposed security measures,and confirm the adequacy of such measures after
implementation.

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APPENDIX CACRONYMS
COMMON ABBREVIATIONS

APTAdvanced Persistent Threat

CIO

Chief Information Officer

CNSS

Committee on National Security Systems

COTS

Commercial Off-The-Shelf

DoD

Department of Defense

FIPS

Federal Information Processing Standards

FISMA

Federal Information Security Management Act

IAInformation Assurance

ICS

Industrial Control System

IEC

International Electrotechnical Commission

ISO

International Organization for Standardization

NIST

National Institute of Standards and Technology

NSA

National Security Agency

ODNI

Office of the Director of National Intelligence

OMB

Office of Management and Budget

POAM

Plan of Action and Milestones

RMF

Risk Management Framework

SCAP

Security Content Automation Protocol

SP

Special Publication

U.S.C.

United States CodeAPPENDIX CPAGE C-1

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APPENDIX DROLES AND RESPONSIBILITIESKEY PARTICIPANTS IN THE RISK MANAGEMENT PROCESS

T

he following sections describe the roles and responsibilities66 of key participants involvedin an organization’s risk management process.67 Recognizing that organizations havewidely varying missions and organizational structures, there may be differences in naming
conventions for risk management-related roles and how specific responsibilities are allocatedamong organizational personnel (e.g., multiple individuals filling a single role or one individual
filling multiple roles).68 However, the basic functions remain the same. The application of the risk
management process across the three risk management tiers described in this publication is
flexible, allowing organizations to effectively accomplish the intent of the specific tasks within
their respective organizational structures to best manage risk.
D.1 HEAD OF AGENCY (CHIEF EXECUTIVE OFFICER)

The head of agency (or chief executive officer) is the highest-level senior official or executive
within an organization with the overall responsibility to provide information security protectionscommensurate with the risk and magnitude of harm (i.e., impact) to organizational operations andassets, individuals, other organizations, and the Nation resulting from unauthorized access, use,
disclosure, disruption, modification, or destruction of: (i) information collected or maintained byor on behalf of the agency; and (ii) information systems used or operated by an agency or by acontractor of an agency or other organization on behalf of an agency. Agency heads are also
responsible for ensuring that: (i) information security management processes are integrated withstrategic and operational planning processes; (ii) senior officials within the organization provide
information security for the information and information systems that support the operations andassets under their control; and (iii) the organization has trained personnel sufficient to assist incomplying with the information security requirements in related legislation, policies, directives,
instructions, standards, and guidelines. Through the development and implementation of strong
policies, the head of agency establishes the organizational commitment to information security
and the actions required to effectively manage risk and protect the missions/business functions
being carried out by the organization. The head of agency establishes appropriate accountability
for information security and provides active support and oversight of monitoring andimprovement for the information security program. Senior leadership commitment to information
security establishes a level of due diligence within the organization that promotes a climate formission and business success.
D.2 RISK EXECUTIVE (FUNCTION)

The risk executive (function) is an individual or group within an organization that provides a morecomprehensive, organization-wide approach to risk management. The risk executive (function)
serves as the common risk management resource for senior leaders/executives, mission/business
66

The roles and responsibilities described in this appendix are consistent with the roles and responsibilities associatedwith the Risk Management Framework in NIST Special Publication 800-37.
67
Organizations may define other roles (e.g., facilities manager, human resources manager, systems administrator) to
support the risk management process.
68

Caution is exercised when one individual fills multiples roles in the risk management process to ensure that theindividual retains an appropriate level of independence and remains free from conflicts of interest.

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owners, chief information officers, chief information security officers, information systemowners, common control providers, enterprise architects, information security architects,
information systems/security engineers, information system security managers/officers, and anyother stakeholders having a vested interest in the mission/business success of organizations. The
risk executive (function) coordinates with senior leaders/executives to:•

Establish risk management roles and responsibilities;•

Develop and implement an organization-wide risk management strategy that guides andinforms organizational risk decisions (including how risk is framed, assessed, responded to,and monitored over time);•

Manage threat and vulnerability information with regard to organizational information
systems and the environments in which the systems operate;•

Establish organization-wide forums to consider all types and sources of risk (including
aggregated risk);•

Determine organizational risk based on the aggregated risk from the operation and use of
information systems and the respective environments of operation;•

Provide oversight for the risk management activities carried out by organizations to ensure
consistent and effective risk-based decisions;•

Develop a greater understanding of risk with regard to the strategic view of organizations andtheir integrated operations;•

Establish effective vehicles and serve as a focal point for communicating and sharing riskrelated information among key stakeholders internally and externally to organizations;•

Specify the degree of autonomy for subordinate organizations permitted by parent
organizations with regard to framing, assessing, responding to, and monitoring risk;•

Promote cooperation and collaboration among authorizing officials to include security
authorization actions requiring shared responsibility (e.g., joint/leveraged authorizations);•

Ensure that security authorization decisions consider all factors necessary for mission andbusiness success; and•Ensure shared responsibility for supporting organizational missions and business functions
using external providers receives the needed visibility and is elevated to appropriate decisionmaking authorities.

The risk executive (function) presumes neither a specific organizational structure nor formal
responsibility assigned to any one individual or group within the organization. Heads of agencies
or organizations may choose to retain the risk executive (function) or to delegate the function.
The risk executive (function) requires a mix of skills, expertise, and perspectives to understandthe strategic goals and objectives of organizations, organizational missions/business functions,
technical possibilities and constraints, and key mandates and guidance that shape organizational
operations. To provide this needed mixture, the risk executive (function) can be filled by a single
individual or office (supported by an expert staff) or by a designated group (e.g., a risk board,
executive steering committee, executive leadership council). The risk executive (function) fits
into the organizational governance structure in such a way as to facilitate efficiency andeffectiveness.

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D.3 CHIEF INFORMATION OFFICER

The chief information officer69 is an organizational official responsible for: (i) designating asenior information security officer; (ii) developing and maintaining information security policies,
procedures, and control techniques to address all applicable requirements; (iii) overseeing
personnel with significant responsibilities for information security and ensuring that the personnel
are adequately trained; (iv) assisting senior organizational officials concerning their security
responsibilities; and (v) in coordination with other senior officials, reporting annually to the headof the federal agency on the overall effectiveness of the organization’s information security
program, including progress of remedial actions. The chief information officer, with the supportof the risk executive (function) and the senior information security officer, works closely withauthorizing officials and their designated representatives to help ensure that:•

An organization-wide information security program is effectively implemented resulting in
adequate security for all organizational information systems and environments of operation
for those systems;•

Information security considerations are integrated into programming/planning/budgeting
cycles, enterprise architectures, and acquisition/system development life cycles;•

Information systems are covered by approved security plans and are authorized to operate;•

Information security-related activities required across the organization are accomplished in an
efficient, cost-effective, and timely manner; and•There is centralized reporting of appropriate information security-related activities.

The chief information officer and authorizing officials also determine, based on organizational
priorities, the appropriate allocation of resources dedicated to the protection of the information
systems supporting the organization's missions and business functions. For selected information
systems, the chief information officer may be designated as an authorizing official or a coauthorizing official with other senior organizational officials. The role of chief information
officer has inherent U.S. Government authority and is assigned to government personnel only.
D.4 INFORMATION OWNER/STEWARD

The information owner/steward is an organizational official with statutory, management, or
operational authority for specified information and the responsibility for establishing the policies
and procedures governing its generation, collection, processing, dissemination, and disposal.70 In
information-sharing environments, the information owner/steward is responsible for establishing
the rules for appropriate use and protection of the subject information (e.g., rules of behavior) andretains that responsibility when the information is shared with or provided to other organizations.
The owner/steward of the information processed, stored, or transmitted by an information system
69

When an organization has not designated a formal chief information officer position, FISMA requires the associatedresponsibilities to be handled by a comparable organizational official.

70

Federal information is an asset of the Nation, not of a particular federal agency or its subordinate organizations. In
that spirit, many federal agencies are developing policies, procedures, processes, and training needed to end the practiceof information ownership and implement the practice of information stewardship. Information stewardship is thecareful and responsible management of federal information belonging to the Nation as a whole, regardless of the entity
or source that may have originated, created, or compiled the information. Information stewards provide maximum
access to federal information to elements of the federal government and its customers, balanced by the obligation toprotect the information in accordance with the provisions of FISMA and any associated security-related federal
policies, directives, regulations, standards, and guidance.

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may or may not be the same as the system owner. A single information system may contain
information from multiple information owners/stewards. Information owners/stewards provide
input to information system owners regarding the security requirements and security controls forthe systems where the information is processed, stored, or transmitted.
D.5 SENIOR INFORMATION SECURITY OFFICER

The senior information security officer is an organizational official responsible for: (i) carryingout the chief information officer security responsibilities under FISMA; and (ii) serving as theprimary liaison for the chief information officer to the organization’s authorizing officials,
information system owners, common control providers, and information system security officers.
The senior information security officer: (i) possesses professional qualifications, including
training and experience, required to administer the information security program functions; (ii)maintains information security duties as a primary responsibility; and (iii) heads an office withthe mission and resources to assist the organization in achieving more secure information andinformation systems in accordance with the requirements in FISMA. The senior information
security officer (or supporting staff members) may also serve as authorizing official designatedrepresentatives or security control assessors. The role of senior information security officer has
inherent U.S. Government authority and is assigned to government personnel only.
D.6 AUTHORIZING OFFICIAL

The authorizing official is a senior official or executive with the authority to formally assume
responsibility for operating an information system at an acceptable level of risk to organizational
operations and assets, individuals, other organizations, and the Nation.71 Authorizing officials
typically have budgetary oversight for an information system or are responsible for the mission
and/or business operations supported by the system. Through the security authorization process,authorizing officials are accountable for the security risks associated with information system
operations. Accordingly, authorizing officials are in management positions with a level ofauthority commensurate with understanding and accepting such information system-related
security risks. Authorizing officials also approve security plans, memorandums of agreement or
understanding, and plans of action and milestones and determine whether significant changes in
the information systems or environments of operation require reauthorization. Authorizing
officials can deny authorization to operate an information system or if the system is operational,
halt operations, if unacceptable risks exist. Authorizing officials coordinate their activities withthe risk executive (function), chief information officer, senior information security officer,
common control providers, information system owners, information system security officers,
security control assessors, and other interested parties during the security authorization process.
With the increasing complexity of mission/business processes, partnership arrangements, and theuse of external/shared services, it is possible that a particular information system may involve
multiple authorizing officials. If so, agreements are established among the authorizing officials
and documented in the security plan. Authorizing officials are responsible for ensuring that all
activities and functions associated with security authorization that are delegated to authorizing
official designated representatives are carried out. The role of authorizing official has inherent
U.S. Government authority and is assigned to government personnel only.

71

The responsibility of authorizing officials described in FIPS 200, was extended in NIST Special Publication 800-53
to include risks to other organizations and the Nation.

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D.7 AUTHORIZING OFFICIAL DESIGNATED REPRESENTATIVE

The authorizing official designated representative is an organizational official that acts on behalfof an authorizing official to coordinate and conduct the required day-to-day activities associatedwith the security authorization process. Authorizing official designated representatives can beempowered by authorizing officials to make certain decisions with regard to the planning andresourcing of the security authorization process, approval of the security plan, approval andmonitoring the implementation of plans of action and milestones, and the assessment and/or
determination of risk. The designated representative may also be called upon to prepare the final
authorization package, obtain the authorizing official’s signature on the authorization decision
document, and transmit the authorization package to appropriate organizational officials. The
only activity that cannot be delegated to the designated representative by the authorizing official
is the authorization decision and signing of the associated authorization decision document (i.e.,
the acceptance of risk to organizational operations and assets, individuals, other organizations,and the Nation).
D.8 COMMON CONTROL PROVIDER

The common control provider is an individual, group, or organization responsible for thedevelopment, implementation, assessment, and monitoring of common controls (i.e., security
controls inherited by information systems).72 Common control providers are responsible for: (i)documenting the organization-identified common controls in a security plan (or equivalent
document prescribed by the organization); (ii) ensuring that required assessments of common
controls are carried out by qualified assessors with an appropriate level of independence definedby the organization; (iii) documenting assessment findings in a security assessment report; and(iv) producing a plan of action and milestones for all controls having weaknesses or deficiencies.
Security plans, security assessment reports, and plans of action and milestones for common
controls (or a summary of such information) is made available to information system owners
inheriting those controls after the information is reviewed and approved by the senior official or
executive with oversight responsibility for those controls.
D.9 INFORMATION SYSTEM OWNER

The information system owner is an organizational official responsible for the procurement,
development, integration, modification, operation, maintenance, and disposal of an information
system.73 The information system owner is responsible for addressing the operational interests of
the user community (i.e., individuals who depend upon the information system to satisfy mission,business, or operational requirements) and for ensuring compliance with information security
requirements. In coordination with the information system security officer, the information
system owner is responsible for the development and maintenance of the security plan andensures that the system is deployed and operated in accordance with the agreed-upon security
controls. In coordination with the information owner/steward, the information system owner is72

Organizations can have multiple common control providers depending on how information security responsibilities
are allocated organization-wide. Common control providers may also be information system owners when the common
controls are resident within an information system.
73
The information system owner serves as the focal point for the information system. In that capacity, the information
system owner serves both as an owner and as the central point of contact between the authorization process and theowners of components of the system including, for example: (i) applications, networking, servers, or workstations; (ii)owners/stewards of information processed, stored, or transmitted by the system; and (iii) owners of the missions andbusiness functions supported by the system. Some organizations may refer to information system owners as program
managers or business/asset owners.

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also responsible for deciding who has access to the system (and with what types of privileges oraccess rights)74 and ensures that system users and support personnel receive the requisite security
training (e.g., instruction in rules of behavior). Based on guidance from the authorizing official,
the information system owner informs appropriate organizational officials of the need to conduct
the security authorization, ensures that the necessary resources are available for the effort, andprovides the required information system access, information, and documentation to the security
control assessor. The information system owner receives the security assessment results from thesecurity control assessor. After taking appropriate steps to reduce or eliminate vulnerabilities, theinformation system owner assembles the authorization package and submits the package to theauthorizing official or the authorizing official designated representative for adjudication.75
D.10 INFORMATION SYSTEM SECURITY OFFICER

The information system security officer76 is an individual responsible for ensuring that theappropriate operational security posture is maintained for an information system and as such,works in close collaboration with the information system owner. The information system security
officer also serves as a principal advisor on all matters, technical and otherwise, involving thesecurity of an information system. The information system security officer has the detailed
knowledge and expertise required to manage the security aspects of an information system and, inmany organizations, is assigned responsibility for the day-to-day security operations of a system.
This responsibility may also include, but is not limited to, physical and environmental protection,
personnel security, incident handling, and security training and awareness. The information
system security officer may be called upon to assist in the development of the security policies
and procedures and to ensure compliance with those policies and procedures. In close
coordination with the information system owner, the information system security officer often
plays an active role in the monitoring of a system and its environment of operation to include
developing and updating the security plan, managing and controlling changes to the system, andassessing the security impact of those changes.
D.11 INFORMATION SECURITY ARCHITECT

The information security architect is an individual, group, or organization responsible for
ensuring that the information security requirements necessary to protect the organizational
missions/business functions are adequately addressed in all aspects of enterprise architecture
including reference models, segment and solution architectures, and the resulting information
systems supporting those missions and business processes. The information security architect
serves as the liaison between the enterprise architect and the information system security engineer
and also coordinates with information system owners, common control providers, andinformation system security officers on the allocation of security controls as system-specific,
hybrid, or common controls. In addition, information security architects, in close coordination
with information system security officers, advise authorizing officials, chief information officers,
74
The responsibility for deciding who has access to specific information within an information system (and with whattypes of privileges or access rights) may reside with the information owner/steward.
75

Depending on how the organization has organized its security authorization activities, the authorizing official may
choose to designate an individual other than the information system owner to compile and assemble the information forthe security authorization package. In this situation, the designated individual must coordinate the compilation andassembly activities with the information system owner.
76

Organizations may also define an information system security manager or information security manager role withsimilar responsibilities as an information system security officer or with oversight responsibilities for an information
security program. In these situations, information system security officers may, at the discretion of the organization,
report directly to information system security managers or information security managers.

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senior information security officers, and the risk executive (function), on a range of securityrelated issues including, for example, establishing information system boundaries, assessing theseverity of weaknesses and deficiencies in the information system, plans of action and milestones,
risk mitigation approaches, security alerts, and potential adverse effects of vulnerabilities.
D.12 INFORMATION SYSTEM SECURITY ENGINEER

The information system security engineer is an individual, group, or organization responsible for
conducting information system security engineering activities. Information system security
engineering is a process that captures and refines information security requirements and ensuresthat the requirements are effectively integrated into information technology component products
and information systems through purposeful security architecting, design, development, andconfiguration. Information system security engineers are an integral part of the development team(e.g., integrated project team) designing and developing organizational information systems or
upgrading legacy systems. Information system security engineers employ best practices when
implementing security controls within an information system including software engineering
methodologies, system/security engineering principles, secure design, secure architecture, andsecure coding techniques. System security engineers coordinate their security-related activities
with information security architects, senior information security officers, information systemowners, common control providers, and information system security officers.
D.13 SECURITY CONTROL ASSESSOR

The security control assessor is an individual, group, or organization responsible for conducting acomprehensive assessment of the management, operational, and technical security controls
employed within or inherited by an information system to determine the overall effectiveness ofthe controls (i.e., the extent to which the controls are implemented correctly, operating as
intended, and producing the desired outcome with respect to meeting the security requirements
for the system). Security control assessors also provide an assessment of the severity of
weaknesses or deficiencies discovered in the information system and its environment of operation
and recommend corrective actions to address identified vulnerabilities. In addition to the above
responsibilities, security control assessors prepare the final security assessment report containing
the results and findings from the assessment. Prior to initiating the security control assessment, anassessor conducts an assessment of the security plan to help ensure that the plan provides a set of
security controls for the information system that meet the stated security requirements.
The required level of assessor independence is determined by the specific conditions of the
security control assessment. For example, when the assessment is conducted in support of an
authorization decision or ongoing authorization, the authorizing official makes an explicit
determination of the degree of independence required in accordance with federal policies,
directives, standards, and guidelines. Assessor independence is an important factor in: (i)preserving the impartial and unbiased nature of the assessment process; (ii) determining thecredibility of the security assessment results; and (iii) ensuring that the authorizing official
receives the most objective information possible in order to make an informed, risk-based,authorization decision. The information system owner and common control provider rely on the
security expertise and the technical judgment of the assessor to: (i) assess the security controls
employed within and inherited by the information system using assessment procedures specified
in the security assessment plan; and (ii) provide specific recommendations on how to correct
weaknesses or deficiencies in the controls and address identified vulnerabilities.

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APPENDIX ERISK MANAGEMENT PROCESS TASKSSUMMARY OF TASKS FOR STEPS IN THE RISK MANAGEMENT PROCESSTASKTASK DESCRIPTION

Step 1: Risk Framing
TASK 1-1
RISK ASSUMPTIONS

Identify assumptions that affect how risk is assessed, responded to, and monitored
within the organization.

TASK 1-2
RISK CONSTRAINTS

Identify constraints on the conduct of risk assessment, risk response, and risk
monitoring activities within the organization.

TASK 1-3
RISK TOLERANCE

Identify the level of risk tolerance for the organization.

TASK 1-4
PRIORITIES AND TRADE-OFFS

Identify priorities and trade-offs considered by the organization in managing risk.

Step 2: Risk Assessment
TASK 2-1
THREAT AND VULNERABILITYIDENTIFICATION

Identify threats to and vulnerabilities in organizational information systems and theenvironments in which the systems operate.

TASK 2-2
RISK DETERMINATION

Determine the risk to organizational operations and assets, individuals, otherorganizations, and the Nation if identified threats exploit identified vulnerabilities.

Step 3: Risk Response
TASK 3-1
RISK RESPONSE IDENTIFICATION

Identify alternative courses of action to respond to risk determined during the risk
assessment.

TASK 3-2
EVALUATION OF ALTERNATIVES

Evaluate alternative courses of action for responding to risk.

TASK 3-3
RISK RESPONSE DECISION

Decide on the appropriate course of action for responding to risk.

TASK 3-4
RISK RESPONSE IMPLEMENTATION

Implement the course of action selected to respond to risk.

Step 4: Risk Monitoring
TASK 4-1
RISK MONITORING STRATEGY

Develop a risk monitoring strategy for the organization that includes the purpose, type,and frequency of monitoring activities.

TASK 4-2
RISK MONITORING

Monitor organizational information systems and environments of operation on an
ongoing basis to verify compliance, determine effectiveness of risk response
measures, and identify changes.

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APPENDIX FGOVERNANCE MODELSAPPROACHES TO INFORMATION SECURITY GOVERNANCE

T

hree approaches to information security governance can be used to meet organizational
needs: (i) a centralized approach; (ii) a decentralized approach; or (iii) a hybrid approach.
The authority, responsibility, and decision-making power related to information security
and risk management differ in each governance approach. The appropriate governance structure
for an organization varies based on many factors (e.g., mission/business needs; culture and size ofthe organization; geographic distribution of organizational operations, assets, and individuals; andrisk tolerance). The information security governance structure is aligned with other governancestructures (e.g., information technology governance) to ensure compatibility with the establishedmanagement practices within the organization and to increase its overall effectiveness.
Centralized GovernanceIn centralized governance structures, the authority, responsibility, and decision-making power are
vested solely within central bodies. These centralized bodies establish the appropriate policies,
procedures, and processes for ensuring organization-wide involvement in the development andimplementation of risk management and information security strategies, risk, and information
security decisions, and the creation inter-organizational and intra-organizational communication
mechanisms. A centralized approach to governance requires strong, well-informed central
leadership and provides consistency throughout the organization. Centralized governancestructures also provide less autonomy for subordinate organizations that are part of the parent
organization.
Decentralized GovernanceIn decentralized information security governance structures, the authority, responsibility, anddecision-making power are vested in and delegated to individual subordinate organizations within
the parent organization (e.g., bureaus/components within an executive department of the federal
government or business units within a corporation). Subordinate organizations establish their own
policies, procedures, and processes for ensuring (sub) organization-wide involvement in thedevelopment and implementation of risk management and information security strategies, risk
and information security decisions, and the creation of mechanisms to communicate within theorganization. A decentralized approach to information security governance accommodates
subordinate organizations with divergent mission/business needs and operating environments atthe cost of consistency throughout the organization as a whole. The effectiveness of this approachis greatly increased by the sharing of risk-related information among subordinate organizations sothat no subordinate organization is able to transfer risk to another without the latter’s informed
consent. It is also important to share risk-related information with parent organizations as the risk
decisions by subordinate organizations may have an effect on the organization as a whole.
Hybrid GovernanceIn hybrid information security governance structures, the authority, responsibility, and decisionmaking power are distributed between a central body and individual subordinate organizations.
The central body establishes the policies, procedures, and processes for ensuring organizationwide involvement in the portion of the risk management and information security strategies anddecisions affecting the entire organization (e.g., decisions related to shared infrastructure or

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common security services). Subordinate organizations, in a similar manner, establish appropriate
policies, procedures, and processes for ensuring their involvement in the portion of the risk
management and information security strategies and decisions that are specific to their
mission/business needs and environments of operation. A hybrid approach to governance requires
strong, well-informed leadership for the organization as a whole and for subordinate
organizations, and provides consistency throughout the organization for those aspects of risk andinformation security that affect the entire organization.

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APPENDIX G

TRUST MODELSAPPROACHES TO ESTABLISHING TRUST RELATIONSIPST

he following trust models describe ways in which organizations can obtain the levels oftrust needed to form partnerships, collaborate with other organizations, share information,or receive information system/security services. No single trust model is inherently better
than any other model. Rather, each model provides organizations with certain advantages anddisadvantages based on their circumstances (e.g., governance structure, risk tolerance, andcriticality/sensitivity of organizational missions and business processes).
Validated Trust
In the validated trust model, one organization obtains a body of evidence regarding the actions ofanother organization (e.g., the organization’s information security policies, activities, and riskrelated decisions) and uses that evidence to establish a level of trust with the other organization.
An example of validated trust is where one organization develops an application or information
system and provides evidence (e.g., security plan, assessment results) to a second organizationthat supports the claims by the first organization that the application/system meets certain security
requirements and/or addresses the appropriate security controls in NIST Special Publication 80053. Validated trust may not be sufficient—that is, the evidence offered by the first organization to
the second organization may not fully satisfy the second organization’s trust requirements or trust
expectations. The more evidence provided between organizations as well as the quality of such
evidence, the greater the degree of trust that can be achieved. Trust is linked to the degree oftransparency between the two organizations with regard to risk and information security-related
activities and decisions.
Direct Historical Trust
In the direct historical trust model, the track record exhibited by an organization in the past,
particularly in its risk and information security-related activities and decisions, can contribute toand help establish a level of trust with other organizations. While validated trust models assume
that an organization provides the required level of evidence needed to establish trust, obtaining
such evidence may not always be possible. In such instances, trust may be based on otherdeciding factors, including the organization’s historical relationship with the other organization or
its recent experience in working with the other organization. For example, if one organization has
worked with a second organization for years doing some activity and has not had any negative
experiences, the first organization may be willing to trust the second organization in working on
another activity, even though the organizations do not share any common experience for thatparticular activity. Direct historical trust tends to build up over time with the more positive
experiences contributing to increased levels of trust between organizations. Conversely, negative
experiences may cause trust levels to decrease among organizations.
Mediated Trust
In the mediated trust model, an organization establishes a level of trust with another organization
based on assurances provided by some mutually trusted third party. There are several types of
mediated trust models that can be employed. For example, two organizations attempting toestablish a trust relationship may not have a direct trust history between the two organizations,but do have a trust relationship with a third organization. The third party that is trusted by both

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organizations, brokers the trust relationship between the two organizations, thus helping toestablish the required level of trust. Another type of mediated trust involves the concept oftransitivity of trust. In this example, one organization establishes a trust relationship with asecond organization. Independent of the first trust relationship, the second organization
establishes a trust relationship with a third organization. Since the first organization trusts thesecond organization and the second organization trusts the third organization, a trust relationshipis now established between the first and third organizations (illustrating the concept of transitive
trust among organizations).77
Mandated Trust
In the mandated trust model, an organization establishes a level of trust with another organization
based on a specific mandate issued by a third party in a position of authority.78 This mandate canbe established by the respective authority through Executive Orders, directives, regulations, or
policies (e.g., a memorandum from an agency head directing that all subordinate organizations
accept the results of security assessments conducted by any subordinate organization within theagency). Mandated trust can also be established when some organizational entity is decreed to be
the authoritative source for the provision of information resources including information
technology products, systems, or services. For example, an organization may be given the
responsibility and the authority to issue Public Key Infrastructure (PKI) certificates for a group oforganizations.
Hybrid Trust
In general, the trust models described above are not mutually exclusive. Each of the trust models
may be used independently as a stand-alone model or in conjunction with another model. Several
trust models may be used at times within the organization (e.g., at various phases in the systemdevelopment life cycle). Also, since organizations are often large and diverse, it is possible that
subordinate organizations within a parent organization might independently employ different trustmodels in establishing trust relationships with potential partnering organizations (including
subordinate organizations). The organizational governance structure may establish the specificterms and conditions for how the various trust models are employed in a complementary manner
within the organization.
Suitability of Various Trust Models
The trust models can be employed at various tiers in the risk management approach described inthis publication. None of the trust models is inherently better or worse than the others. However,some models may be better suited to some situations than others. For example, the validated trustmodel, because it requires evidence of a technical nature (e.g., tests completed successfully), is
probably best suited for application at Tier 3. In contrast, the direct historical trust model, with asignificant emphasis on past experiences, is more suited for application at Tiers 1 or 2. The
mediated and mandated trust models are typically more oriented toward governance andconsequently are best suited for application at Tier 1. However, some implementations of themandated trust model, for example, being required to trust the source of a PKI certificate, aremore oriented toward Tier 3. Similarly, although the mediated trust model is primarily oriented
toward Tier 1, there can be implementations of it that are more information system-, or Tier 377
In the mediated trust model, the first organization typically has no insight into the nature of the trust relationshipbetween the second and third organizations.
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The authoritative organization explicitly accepts the risks to be incurred by all organizations covered by the mandate
and is accountable for the risk-related decisions imposed by the organization.

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oriented. An example of this application might be the use of authentication services that validate
the authenticity or identity of an information system component or service.
The nature of a particular information technology service can also impact the suitability and theapplicability of the various trust models. The validated trust model is the more traditional model
for validating the trust of an information technology product, system, or service. However, thistrust model works best in situations where there is a degree of control between parties (e.g., acontract between the government and an external service provider) or where there is sufficient
time to obtain and validate the evidence needed to establish a trust relationship. Validated trust isa suboptimal model for situations where the two parties are peers and/or where the trust decisions
regarding shared/supplied services must occur quickly due to the very dynamic and rapid natureof the service being requested/provided (e.g., service-oriented architectures).

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APPENDIX HRISK RESPONSE STRATEGIESFROM BOUNDARY PROTECTION TO AGILE DEFENSES

O

rganizations develop risk management strategies as part of the risk framing step in therisk management process described in Chapter Three. The risk management strategies
address how organizations intend to assess risk, respond to risk, and monitor risk—
making explicit and transparent the risk perceptions that organizations routinely use in making
both investment and operational decisions. As part of organizational risk management strategies,
organizations also develop risk response strategies. The practical realities facing organizations
today make risk response strategies essential—the realities of needing the mission/business
effectiveness offered by information technology, the lack of trustworthiness in the technologies
available, and the growing awareness by adversaries of the potential to achieve their objectives tocause harm by compromising organizational information systems and the environments in whichthose systems operate. Senior leaders/executives in modern organizations are faced with analmost intractable dilemma—that is, the information technologies needed for mission/businesssuccess may be the same technologies through which adversaries cause mission/business failure.
The risk response strategies developed and implemented by organizations provide these seniorleaders/executives (i.e., decision makers within organizations) with practical, pragmatic paths for
dealing with this dilemma. Clearly defined and articulated risk response strategies help to ensurethat senior leaders/executives take ownership of organizational risk responses and are ultimately
responsible and accountable for risk decisions—understanding, acknowledging, and explicitly
accepting the resulting mission/business risk.
As described in Chapter Two, there are five basic types of responses to risk: (i) accept; (ii) avoid;(iii) mitigate; (iv) share; and (v) transfer.79 While each type of response can have an associatedstrategy, there should be an overall strategy for selecting from among the basic response types.
This overall risk response strategy and a strategy for each type of response are discussed below.
In addition, specific risk mitigation strategies are presented, including a description of how suchstrategies can be implemented within organizations.
H.1 OVERALL RISK RESPONSE STRATEGIES

Risk response strategies specify: (i) individuals or organizational subcomponents that are
responsible for the selected risk response measures and specifications of effectiveness criteria(i.e., articulation of indicators and thresholds against which the effectiveness of risk response
measures can be judged); (ii) dependencies of the selected risk response measures on other risk
response measures; (iii) dependencies of selected risk response measures on other factors (e.g.,
implementation of other planned information technology measures); (iv) implementation timeline
for risk responses; (v) plans for monitoring the effectiveness of the risk response measures; (vi)identification of risk monitoring triggers; and (vii) interim risk response measures selected for
implementation, if appropriate. Risk response implementation strategies may include interim
measures that organizations choose to implement. An overall risk response strategy provides anorganizational approach to selecting between the basic risk responses for a given risk situation. A
decision to accept risk must be consistent with the stated organizational tolerance for risk. Yet
79

There is overlap between the basic risk responses. For example, a shared risk is one that is being accepted by eachparty in the sharing arrangement, and avoiding risk can be thought of as mitigating risk to zero. Nonetheless, with thisunderstanding of overlap, there is value in addressing each of the five types of risk responses separately.

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there is still need for a well-defined, established organizational path for selecting one or a
combination of the risk responses of acceptance, avoidance, mitigation, sharing, or transfer.
Organizations are often placed in situations where there is greater risk than the designated seniorleaders/executives desire to accept. Some risk acceptance will likely be necessary. It might bepossible to avoid risk or to share or transfer risk, and some risk mitigation is probably feasible.
Avoiding risk may require selective reengineering of organizational mission/business processes
and forgoing some of the benefits being accrued by the use of information technology
organization-wide, perhaps even what organizations perceive as necessary benefits. Mitigatingrisk requires expenditure of limited resources and may quickly become cost-ineffective due to thepragmatic realities of the degree of mitigation that can actually be achieved. Lastly, risk sharing
and transfer have ramifications as well, some of which if not unacceptable, may be undesirable.
The risk response strategies of organizations empower senior leaders/executives to make riskbased decisions compliant with the goals, objectives, and broader organizational perspectives.
H.2 RISK ACCEPTANCE STRATEGIES

Organizational risk acceptance strategies are essential companions to organizational statementsof risk tolerance. The objective of establishing an organizational risk tolerance is to state in clear
and unambiguous terms, a limit for risk—that is, how far organizations are willing to go withregard to accepting risk to organizational operations (including missions, functions, image, andreputation), organizational assets, individuals, other organizations, and the Nation. Real-world
operations, however, are seldom so simple as to make such risk tolerance statements the endstatement for risk acceptance decisions. Organizational risk acceptance strategies place theacceptance of risk into a framework of organizational perspectives on dealing with the practicalrealities of operating with risk and provide the guidance necessary to ensure that the extent of therisk being accepted in specific situations is compliant with organizational direction.
H.3 RISK AVOIDANCE STRATEGIESOf all the risk response strategies, organizational risk avoidance strategies may be the key toachieving adequate risk response. The pragmatic realities of the trustworthiness of information
technologies available for use within common resource constraints, make wise use of thosetechnologies arguably a significant, if not the most significant risk response. Wise use of theinformation technologies that compose organizational information systems is fundamentally aform of risk avoidance—that is, organizations modify how information technologies are used tochange the nature of the risk being incurred (i.e., avoid the risk). Yet such approaches can be ingreat tension with organizational desires and in some cases, the mandate to fully automate
mission/business processes. Organizations proactively address this dilemma so that: (i) seniorleaders/executives (and other organizational officials making risk-based decisions) are held
accountable for only that which is within their ability to affect; and (ii) decision makers can makethe difficult risk decisions that may, in fact, be in the best interests of organizations.
H.4 RISK SHARING AND TRANSFER STRATEGIES

Organizational risk sharing strategies and risk transfer strategies are key elements in enablingrisk decisions for specific organizational missions/business functions at Tier 2 or organizational
information systems at Tier 3. Risk sharing and transfer strategies both consider and take fulladvantage of a lessening of risk by sharing/transferring the potential impact across other internalorganizational elements or with other external organizations—making the case that some otherentities are, in fact, wholly (transfer) or partly (share) responsible and accountable for risk. For
risk sharing or risk transfer to be effective risk responses, the impact on the local environment(e.g., mission/business processes or information systems) must be addressed by the sharing or

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transfer (i.e., the focus must be on mission/business success, not assigning blame). In addition,risk sharing and risk transfer activities must be carried out in accordance with intra- and interorganizational dynamics and realities (e.g., organizational culture, governance, risk tolerance).
This explains why risk sharing/transfer strategies are particularly important for the sharing and/ortransfer to be a viable risk response option.
H.5 RISK MITIGATION STRATEGIES

Organizational risk mitigation strategies reflect an organizational perspective on what mitigations
are to be employed and where the mitigations are to be applied, to reduce information security
risks to organizational operations and assets, individuals, other organizations, and the Nation.
Risk mitigation strategies are the primary link between organizational risk management programs
and information security programs—with the former covering all aspects of managing risk andthe latter being primarily a part of the risk response component of the risk management process.
Effective risk mitigation strategies consider the general placement and allocation of mitigations,the degree of intended mitigation, and cover mitigations at Tier 1 (e.g., common controls), at Tier
2 (e.g., enterprise architecture including embedded information security architecture, and riskaware mission/business processes), and at Tier 3 (security controls in individual information
systems). Organizational risk mitigation strategies reflect the following:•

Mission/business processes are designed with regard to information protection needs andinformation security requirements;80•

Enterprise architectures (including embedded information security architectures) are designedwith consideration for realistically achievable risk mitigations;•

Risk mitigation measures are implemented within organizational information systems andenvironments of operation by safeguards/countermeasure (i.e., security controls) consistent
with information security architectures; and•Information security programs, processes, and safeguards/countermeasures are highly flexible
and agile with regard to implementation, recognizing the diversity in organizational missions
and business functions and the dynamic environments in which the organizations operate.81

Organizations develop risk mitigation strategies based on strategic goals and objectives, mission
and business requirements, and organizational priorities. The strategies provide the basis formaking risk-based decisions on the information security solutions associated with and applied to
information systems within the organization. Risk mitigation strategies are necessary to ensurethat organizations are adequately protected against the growing threats to information processed,
stored, and transmitted by organizational information systems. The nature of the threats and the
dynamic environments in which organizations operate, demand flexible and scalable defenses aswell as solutions that can be tailored to meet rapidly changing conditions. These conditions
include, for example, the emergence of new threats and vulnerabilities, the development of newtechnologies, changes in missions/business requirements, and/or changes to environments ofoperation. Effective risk mitigation strategies support the goals and objectives of organizations
and established mission/business priorities, are tightly coupled to enterprise architectures andinformation security architectures, and can operate throughout the system development life cycle.
80

In addition to mission/business-driven information protection needs, information security requirements are obtained
from a variety of sources (e.g., federal legislation, policies, directives, regulations, and standards).
81
Dynamic environments of operation are characterized, for example, by ongoing changes in people, processes,
technologies, physical infrastructure, and threats.

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Traditional risk mitigation strategies with regard to threats from cyber attacks at first reliedalmost exclusively on monolithic boundary protection. These strategies assumed adversaries
were outside of some established defensive perimeter, and the objective of organizations was torepel the attack. The primary focus of static boundary protection was penetration resistance of theinformation technology products and information systems employed by the organization as wellas any additional safeguards and countermeasures implemented in the environments in which the
products and systems operated. Recognition that information system boundaries were permeable
or porous led to defense-in-depth as part of the mitigation strategy, relying on detection andresponse mechanisms to address the threats within the protection perimeter. In today’s world
characterized by advanced persistent threats,82 a more comprehensive risk mitigation strategy isneeded—a strategy that combines traditional boundary protection with agile defense.
Agile defense assumes that a small percentage of threats from purposeful cyber attacks will be
successful by compromising organizational information systems through the supply chain83 bydefeating the initial safeguards and countermeasures (i.e., security controls) implemented byorganizations, or by exploiting previously unidentified vulnerabilities for which protections are
not in place. In this scenario, adversaries are operating inside the defensive perimeters establishedby organizations and may have substantial or complete control of organizational information
systems. Agile defense employs the concept of information system resilience—that is, the abilityof systems to operate while under attack, even in a degraded or debilitated state, and to rapidly
recover operational capabilities for essential functions after a successful attack. The concept of
information system resilience can also be applied to the other classes of threats including threats
from environmental disruptions and/or human errors of omission/commission. The most effective
risk mitigation strategies employ a combination of boundary protection and agile defenses
depending on the characteristics of the threat.84 This dual protection strategy illustrates two
important information security concepts known as defense-in-depth85 and defense-in-breadth.86
Information has value and must be protected. Information systems (including people, processes, andtechnologies) are the primary vehicles employed to process, store, and transmit such information—
allowing organizations to carry out their missions in a variety of environments of operation and to
ultimately be successful.

82
An advanced persistent threat is an adversary that possesses sophisticated levels of expertise and significant
resources which allow it to create opportunities to achieve its objectives by using multiple attack vectors (e.g., cyber,physical, and deception). These objectives typically include establishing/extending footholds within the information
technology infrastructure of the targeted organizations for purposes of exfiltrating information, undermining or
impeding critical aspects of a mission, program, or organization; or positioning itself to carry out these objectives in the
future. The advanced persistent threat: (i) pursues its objectives repeatedly over an extended period of time; (ii) adapts
to defenders’ efforts to resist it; and (iii) is determined to maintain the level of interaction needed to execute its
objectives.
83

Draft NIST Interagency Report 7622 provides guidance on managing supply chain risk.

84

Threat characteristics include capabilities, intentions, and targeting information.

85

Defense-in-depth is an information security strategy integrating people, technology, and operations capabilities toestablish variable barriers across multiple layers and missions of the organization.
86
Defense-in-breadth is a planned, systematic set of multidisciplinary activities that seek to identify, manage, andreduce risk of exploitable vulnerabilities at every stage of the system, network, or subcomponent life cycle (system,
network, or product design and development; manufacturing; packaging; assembly; system integration; distribution;
operations; maintenance; and retirement).

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