Annex B
TRAVEL ADVICE AND TERRORISM: GUIDANCE
What message do we want to convey?
What sorts of language should I use to describe
the threat?
What should we include in the Terrorism Section?
When do we say Threat and when do we say
Risk?
Should we distinguish between the threat
of international and domestic terrorism?
When should we use advice to "Be vigilant
. . .".
Should we refer to host governments' own
assessments of the threat and their capabilities to counter it?
What language should we avoid using?
What if it is a serious threat, which might
need to be considered out of hours?
Whom do I contact if I have any questions?
WHAT MESSAGE
DO WE
WANT TO
CONVEY?
1. We want to give readers information about
what we believe to be the level and nature of the threat, whether
that threat is aimed at British/western interests, and where to
go for further advice. We do not want to be alarmist—if
we think the threat is low, we should say so.
WHAT SORTS
OF LANGUAGE
SHOULD I USE
TO DESCRIBE
THE THREAT?
2. Examples of suitable language:
— We believe terrorists are in the
final stages of planning attacks in Country A (only use when justifiable
on current, credible intelligence).
— You should be aware of the [high]
threat from terrorism (or you can use "continuing" when
there have been previous incidents which illustrate the threat).
— The threat from terrorism is low.
— Country A shares with [neighbouring
countries/the rest of the region] a [high] threat from international/domestic
terrorism [to visibly western and/or British interests].
IN ADDITION,
YOU SHOULD
GENERALLY USE
THE FOLLOWING
PHRASES
— "You should be aware of the
global risk of indiscriminate terrorist attacks, which could be
against civilian targets, including places frequented by foreigners."
— Please read "Security and General
Tips" and "Risk of Terrorism when Travelling Overseas"
pages.
WHAT SHOULD
WE INCLUDE
IN THE
TERRORISM SECTION?
— How serious the threat is.
— Which groups are known to be active
(see below for terms to describe Al Qaida type terrorism).
— Whether any previous incidents—what
type.
— Information on any current, specific
threats (if appropriate).
— What the host government says about
the threat (if appropriate—see below).
— Whether the host government is mounting
an effective CT policy (if this clarifies the threat picture).
— Who the targets are likely to be
(is the main risk one of being in the wrong place at the wrong
time?).
— The threat from indiscriminate attacks
globally.
— Links to other relevant pages.
WHEN DO
WE SAY
THREAT AND
WHEN DO
WE SAY
RISK?
4. Some Travel Advice notices currently
describe what we assess to be the risk from terrorism in that
country, some about threat. We should standardise and always talk
about what we assess the "threat" to be. This refers
to the intent and capability of terrorist groups. Risk is a wider
concept.
SHOULD WE
DISTINGUISH BETWEEN
THE THREAT
OF INTERNATIONAL
AND DOMESTIC
TERRORISM?
5. When appropriate, yes. For example in
Turkey local groups eg DHKP-C have carried out primarily low-level
attacks against largely host interests, but there have also been
major attacks by international terrorists, linked to Al Qaida,
against synagogues, the British Consulate and HSBC in Istanbul.
6. The phrase "Islamist terrorism"
causes offence among Muslims. And we should not attribute all
terrorism of this nature under the heading "Al Qaida"
(apart from being inaccurate, it creates an exaggerated impression
of an all-powerful organisation). Where you need to specify the
difference between local groups and Al Qaida related networks,
it is best to refer simply to "international terrorism [aimed
at Western interests]".
7. Where such a distinction isn't necessary,
it is better simply to say "terrorism" and explain the
circumstances of the country.
WHEN SHOULD
WE USE
ADVICE TO
"BE VIGILANT
. . .?"
8. The Security and General Tips and Risk
of Terrorism links advise people to be alert to unattended baggage,
etc. There will be advice for businesses in the latter link when
it is updated shortly.
9. In the Travel Advice we should therefore
limit ourselves to advising people to be vigilant only where such
advice is helpful (ie not in such a long list of places, or such
general categories, that readers could feel the advice useless).
SHOULD WE
REFER TO
HOST GOVERNMENTS'
OWN ASSESSMENTS
OF THE
THREAT AND
THEIR CAPABILITIES
TO COUNTER
IT?
10. Not if it is a PR line saying how safe
their country is. But when a government itself issues a warning
or description of the threat in its country, it would be artificial
and limiting not to quote it. It may also be relevant to describe
to what extent the authorities of the country are mounting an
effective CT policy.
WHAT LANGUAGE
SHOULD WE
AVOID USING?
11. You should avoid using phrases such
as "we see no risk of a terrorist incident" and "we
are unaware of a specific threat" as these are hostages to
fortune should any incident subsequently occur.
WHAT DO
I DO IF
IT IS
A SERIOUS
THREAT WHICH
MIGHT NEED
TO BE
CONSIDERED BY
MINISTERS OUT
OF OFFICE
HOURS?
12. Ideally, Travel Advice changes should
be made within office hours. The media will tend to make more
of a story of a Travel Advice change out of hours. That is fine
if we are looking to create headlines, but otherwise best avoided.
However, we cannot always guarantee that advice to Ministers will
reach them before Close of Play, especially if the JTAC assessment
emerges late in the day. It may be right on occasion to leave
the Ministerial decision until the following day when it can be
considered properly. There is a balance between urgency (the risk
that a bomb goes off in the interim) and the advantages of giving
Ministers proper time and information on which to base their decisions.
This should be a decision for Private Office based on advice from
DGCA, through whom the submission will have come. You should be
guided by the following principles:
— Any serious imminent threat should
be considered collectively by the relevant Departments, and if
it involves aviation security or otherwise brings in OGDs, in
a Cabinet Office meeting. This should agree advice to put to Ministers.
— Press Office should be brought in
from the start, and Private Office tipped off with a phone call
by the Geographical Desk. Private Office can advise on the Foreign
Secretary's availability and arrangements for getting him highly
classified assessments.
— Every submission should address the
question "is this a change that should be announced by the
Press Office, or one that should simply be placed on the website"?
The implications of the latter for possible press coverage should
be set out.
— Geographical departments should adhere
firmly to the general guidance on submitting Travel Advice changes
to Ministers: the only changes related to terrorist threats that
need not go to Ministers are purely factual changes and routine
tidying up. If there is any doubt about a particular case, the
submission should go anyway to DGCA, who is best placed to decide
whether to send it on to Ministers.
Whom do I contact if I have any questions?
Contacts in CTPD Threats Team:
Middle East: 020 7008 4310
Africa: Ext 2590
South East Asia/South Asia: Ext 2240
Europe/Americas/FSU: Ext 3641
Policy: Threats Team Manager: Ext 1959
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