Macy focused his efforts by emphasizing the similarities between natural hazards preparedness and civil defense by developing a new concept called the integrated Emergency Management System (EMS). Programs focused on nuclear war preparations were combined with programs focused on new consciousness of the environment and floodplain management. John Macy, task was to unify an organization that was not only physically separated-parts of the agency were located in five different buildings around Washington-but also philosophically separate. No large constituent group was identified with emergency management, and at the time the administration was facing major problems with congress and the public because of the Iranian hostage crisis. In addition, President Carter had problems finding a director for this new organization. A second executive order, 12148, mandated the reassignment of agencies, of programs, and personnel into the new entity, FEMA. The Federal Emergency Management Agency was officially established by executive order 12127 of March 31, 1979(44 FR 19367, 3 CFR, Comp., p. It seeks to inform and facilitate decisions appropriate to different levels of government and to private citizens at home and at work. This system is intended to create a common vocabulary, context, and structure for an ongoing national discussion about the nature of the threats that confront the homeland and the appropriate measures that should be taken in response. At each threat condition, federal departments and agencies would implement a corresponding set of "protective measures" to further reduce vulnerability or increase response capability during a period of heighten alert. Such a system would provide warnings in the form of a set of graduated "threat conditions" that would increase as the risk of the threat increases. In March 2002, President Bush signed Homeland Security Presidential Directive-3(HSPD-3), which stated the following: the nation requires a homeland security advisory system to provide a comprehensive and effective means to disseminate information regarding the risk of terrorist acts to federal, state, and local authorities and to the American people.