Civil Defense or National Security Report to THE SECRETARY OF DEFENSE by the OFFICE OF CIVIL DEFENSE PLANNING 0. S. Array Military Hi Civil Defense for National Security As Prepared and Recommended by the c,. OFFICE OF CIVIL DEFENSE PLANNING RUSSELL J. HOPLEY, Director For sale by the Superintendent of Documents, U. S. Government Printing Office Washington 25, D. C. Price $1.00 PROPERTY OF U.S . ARMY TABLE OF CONTENTS Letter of Transmitted Introduction Pagt THE NEED FOR CIVIL DEFENSE 1 ESSENTIAL FUNCTIONS OF CIVIL DEFENSE 4 BASIC PRINCIPLES OF THE CIVIL DEFENSE PLAN 14 Proposed Organization for Civil Defense FEDERAL ORGANIZATION (Including National and Regional Offices and Territories and Possessions) 18 STATE ORGANIZATION __ 25 LOCAL ORGANIZATION 31 METROPOLITAN AREA ORGANIZATION 47 Civil Defense Operations and Services MEDICAL AND HEALTH SERVICES AND SPECIAL WEAPONS DEFENSE Medical and Health Services 49 Radiological Defense 73 Chemical Defense (Including Gas Masks and Incendiaries) 92 Other Special Weapons Defense 1 107 TECHNICAL SERVICES Communications and Radio Broadcasting Services 108 Fire Services 122 !> Police Services (Including Unexploded Bomb Reconnaissance) __ 136 \ Warden Services 150 Engineering Services (Including Blackout, Dimout, Camouflage, Protective Construction, Shelters, City Planning and Sanitary Engineering) 157 Rescue Services 171 Transportation (Including Emergency Ambulance Service) 175 Civil Air Patrol 189 PLANS AND OPERATIONS Mutual Aid and Mobile Reserve 191 Plant Protection 207 Evacuation 220 Civilian War Aid (Including Emergency Clothing, Feeding, Re- habilitation and Shelter) 227 Ah- Raid Warning and Aircraft Observers 235 Control Centers 244 Incident Officers 248 Manpower Requirements 249 Supply System 252 TRAINING 258 PUBLIC INFORMATION 267 RESEARCH AND DEVELOPMENT 270 Legislative Requirements to Implement the Civil Defense Program (Including Federal, State and Local) 277 II! Appendix DIRECTIVE ESTABLISHING THE OFFICE OF CIVIL DEFENSE PLANNING. _ 291 PERSONNEL OF THE OFFICE OF CIVIL DEFENSE PLANNING 295 PERSONNEL OF THE ADVISORY PANELS 297 CHARTS Office of Civil Defense Planning Chart 1 Proposed Federal Organization for Civil Defense . Chart 2 Suggested Model for State Organization of Civil Defense Chart 3 Suggested Model for Local Organization of Civil Defense Chart 4 Proposed Organization for Medical and Health Services Division Chart 5 Proposed Organization for Radiological Defense Division Chart 6 Proposed Organization for Chemical Defense Division Chart 7 Proposed Organization for Communications Division Chart 8 Proposed Organization for Fire Services Division Chart 9 Proposed Organization for Police Services Division Chart 10 Proposed Organization for Engineering Division ^ Chart 11 Proposed Organization for Transportation Division Chart 12 Outline of Steps in Civil Defense Action Chart 13 Proposed Organization for Mutual Aid and Mobile Reserve Division Chart 14 Proposed Civil Defense Mobile Reserve Battalions Chart 15 Proposed Organization for Civil Defense Mobile Reserve Battalion Chart 16 Proposed Organization for Air Raid Warning and Aircraft Observers Division Chart 17 IV OFFICE OF THE SECRETARY OF DEFENSE WASHINGTON October 1, 1948 Honorable JAMES FORRESTAL Secretary of Defense Washington, D. C. DEAR MB. FOREESTAL : In accordance with the terms of your Directive creating the Office of Civil Defense Planning, dated March 27, 1948, I submit to you herewith a National, Regional, State and Community plan for civil defense for national security. It is the purpose of this report to recommend for adoption a permanent peacetime system of civil defense which will round out our defense structure and which, in the event of an emergency, can be quickly and easily expanded to meet the exigencies of a given situation. Such an organization can also be of great value in support of existing agencies in meeting devastating peacetime disasters such as fires, floods, earthquakes, tornadoes, hurricanes, explosions and similar catastrophies. In the event of a future war, which might come to our shores, all of the people, all of the facilities and all of the skills and energies of the nation must be utilized to the fullest extent. To successfully carry out this program will require the cooperation of every man, woman and child in this nation. It is on such principles that civil defense must be erected and it must be with such a requirement that its organization be perfected. We hope that the Civil Defense Organization will never need to operate for war, but we dare not gamble on that hope. We who have studied the prob­ lem feel a great need for prompt action in establishing such an organization. To be without it leaves us in a most vulnerable position. I believe that this plan is sound and logical in all of its aspects and that with the full assistance and cooperation of Federal, State and Community officials, it will afford a strong and effective civil defense program for the United States, its territories, and possessions. The plan as presented herewith was developed following a thorough exam­ ination of civil defense operations in this country and in other countries during World War II and after consultation with representatives of the various agencies of the Federal, State and local governments, the National Military Establish­ ment and a large number of private and public agencies and organizations of all types. In addition, the advice, counsel, assistance and experience of many of the foremost specialists of the country in such fields as medical, radiological, chemical, engineering, fire, police, disaster relief, transportation, communication and many others was sought and utilized. Their participation was most helpful In the development of this plan. It is a pleasure for me to record here my personal thanks and the thanks and appreciation of our entire civil defense planning group to each individual and organization with whom we have had contact. I strongly recommend and urge the adoption of the plan presented in this report. It has been a genuine pleasure to be associated with you in this activity and my thanks go to you, ]Mr. Secretary, for your fine support and inspiring leadership. With kindest personal regards and cordial well wishes, I am Respectfully, RTTSSEIX J. HOPLEY, Director Civil Defense Planning vt INTRODUCTION THE NEED FOR CIVIL DEFENSE America definitely has a "missing link" in its defense structure. Our country has, and is developing, various elements of our defenses to insure national security, but it has no national civil defense. The Army, the Navy and the Air Force are being strengthened with the manpower and equipment needed for security. The National Military Establishment has been created under one head. A National Security Council has been provided for determination of policies. A National Security Kesources Board has been set up to coordinate mobilization problems, both of manpower and materiel. A Munitions Board functions to assure production for the National Military Establishment. A Research and Development Board is taking the leadership in scientific research. Selective Service has been enacted and other measures taken which may prevent aggression. But the missing element—the "missing link"—in the defense structure is civil defense. Without a sound and effective system of civil defense, the people and the productive facilities of the country are unprepared to deal effectively with the results of an enemy attack on our country. This report is presented by authority of your directive of March 27,1948 (see page 291), establishing the Office of Civil Defense Plan­ ning (chart 1) which was instructed, among other things : "To prepare, and to submit to the Secretary of Defense a pro­ gram of civil defense for the United States, including a plan for a permanent federal civil defense agency which, in conjunction with the several states and their subdivisions, can undertake those peacetime preparations which are necessary to assure an adequate civil defense system in the event of war." Civil Defense is the organization of the people to minimize the effects of enemy action. More specifically it is the mobilization, organization and direction of the civilian populace and necessary supporting agencies to minimize the effects of enemy action directed against people, communities, industrial plants, facilities and other installations—and to maintain or restore those facilities essential to civil life and to preserve the maximum civilian support of the war effort. With that as the guiding principle, the Office of Civil Defense Planning enlisted the skills and experience of many people and or­ ganizations in all parts of the country, including various agencies of government. It made use of the findings of the United States Strategic 1 Bombing Survey which examined the experiences in England, Ger­ many and Japan in World War II. It utilized the Provost Marshal General's report on civil defense operations in this country and in other nations; and the report of the War Department Civil Defense Board. The result is a plan which will provide a sound and effective peace­ time system of civil defense that can be quickly and easily expanded in the event of an emergency—a program that will bridge the gap by providing the link that is missing in our defense structure. The program proposes: A National Office of Civil Defense, with a small but capable staff to furnish leadership and guidance in organizing and training the people for civil defense tasks. Basic operational responsibility to be placed in States and com­ munities, but with mutual assistance plans and mobile supporting facilities for aid in emergencies. Maximum utilization of loyal volunteers, existing agencies and organizations, and all available skills and experiences. Well organized and trained units in communities throughout the United States, its territories and possessions, prepared and equipped to meet the problems of enemy attack, and to be ready against any weapon that an enemy may use. Intensive planning to meet the particular hazards of atomic or any other modern weapons of warfare. A peacetime organization which should be used in natural disas­ ters even though it may never have to be used for war.