"The Universal Adversary (UA) Program was originally developed after the release of Senate Report 106- 404 in September 2000, which required Top Officials (TOPOFF) exercises to include a realistic threat model. During the TOPOFF 3 (T3) Full-Scale Exercise (FSE) in April 2005, the UA was a crucial component of the first-ever use of real-world intelligence systems in a domestic counterterrorism exercise. The UA provided the fictionalized intelligence products required by the U.S. Department of Homeland Security (DHS), Federal Bureau of Investigation (FBI), and State, local, and tribal (SLT) analysts while ensuring that these products were realistic, accurate, and sophisticated enough to challenge intelligence analysts. The UA Program has expanded beyond it exercise roots since T3 and now also serves as a real-world tool for analysts and law enforcement personnel."
United States. Federal Emergency Management Agency: http://www.fema.gov/