Table Of ContentCivil 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 NED FOR CIVIL DEFENSE 1
ESENTIAL 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 Teritories and Posesions) 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
Comunications and Radio Broadcasting Services 108
Fire Services 12
!> Police Services (Including Unexploded Bomb Reconnaissance) _ 136
\ Warden Services 150
Engineering Services (Including Blackout, Dimout, Camouflage,
Protective Construction, Shelters, City Planning and Sanitary
Enginering) 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 20
Civilian War Aid (Including Emergency Clothing, Feeding, Re-
habilitation and Shelter) 27
Ah- Raid Warning and Aircraft Observers 235
Control Centers 24
Incident Oficers 248
Manpower Requirements 249
Suply System 252
TRAINING 258
PUBLIC INFORMATION 267
RESEARCH AND DEVELOPMENT 270
Legislative Requirements to Implement the Civil Defense Program (Including
Federal, State and Local) 27
I!
Appendix
DIRECTIVE ESTABLISHING THE OFFICE OF CIVIL DEFENSE PLANNING. _ 291
PERSONEL OF THE OFICE OF CIVIL DEFENSE PLANING 295
PERSONEL 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.
These are the broad purposes of this program, presented in the
hope that international agreements and organizations for the main-
tenance of peace will succeed in their objective, and in the conviction
that this nation does not want war; yet realistically facing the fact
that as long as armies are maintained and war remains even a remote
possibility, this country must be prepared for any eventuality.
If attack should come, it might be by bomber squadrons dropping
atomic bombs, incendiaries or gas bombs, or super-explosives, on one
or a score of our major centers. It might come via guided missiles
from distant points, or from submarines off the American shores. Or
it might come from within the borders of the United States, through
saboteurs and fifth columnists.
However it came, it could mean devastation and death at many
points on such a scale that the tasks of rescue and restoration would
be far beyond the present capabilities of the people and the communi^
ties attacked.
It is sometimes stated that there is no defense against the atomic
bomb, or against some of the other modern weapons which might be
used. The people of this nation may be certain that the Armed Forces
will exert every possible measure to prevent enemy attack from suc-
ceeding, but the possibility of successful attack must be included in
all defense planning; certainly organizing to minimize the effects of
atomic bombs and other weapons is feasible.
When and if an American city is attacked, Civil Defense must be
ready. Civil Defense, well organized and trained, will be ready
to rescue and care for the victims, save lives, reduce suffering, put out
the fires, and restore the facilities.
Civil Defense would tell survivors of an atomic bomb attack to
avoid contaminated areas until danger is passed—and Civil Defense
would know the areas. It would tell them to dispose of contaminated
clothing, to be careful what they touch or eat and to take other pre-
ventive measures. If they were ill from radiation, it would furnish
blood to restore their health. And it would move about in stricken
areas restoring calm, reassuring the frightened, removing the ill or
the homeless.
The specialists who examined Hiroshima and Nagasaki report
that thousands of people died who might have been saved had organized
assistance, thoroughly trained and well equipped, been ready for action.
The City of Cologne, after heavy air attack in 1943, evacuated 230,-
000 civilians with much confusion and difficulty. Despite American
ingenuity, evacuation of an American city on such a scale would be
well handled only if there were careful organization and planning in
advance. Civil Defense is designed to do such planning, in the knowl-
edge that it could happen to American cities.
Hamburg suffered 60,000 killed and 37,000 wounded in a ten day
period. Hurricanes of fire swept beyond possibility of control and
burned for months afterward. If an American city were similarly
attacked, a well organized system of mutual aid and mobile reserves,
as well as fire-fighting, rescue, medical and other services, thoroughly
organized in anticipation of disaster, would greatly reduce the hazards
of such saturation raids.
England might have gone down to defeat had she not prepared
and trained her people in advance so that they knew what to do and
how to do it, when the enemy planes and buzz-bombs came over. Her
air raid warning facilities, her organized civilian services for prompt
action in fighting the results of raids and restoring facilities afterward,
were potent factors in successfully carrying on the war.
Civil Defense encompasses the entire field of passive defense—as
distinguished from active defense which is the function of the Armed
Forces—in saving lives and restoring communities, industrial plants
and facilities of all kinds. That this is a fundamental and all-
important function is self-evident simply by recalling the production
achievements of the United States in the last war. If production were
stopped, the war would be lost.
It readily becomes apparent that the United States now must plan
and operate its defenses on an all-inclusive concept. It no longer is
difficult to visualize an attack on American cities which would require
earnest planning by serious-minded men and women with their nation's
welfare and their own lives at stake—planning and organization which
cannot wait for the attack to occur.
Prior to World War II, England planned and organized her civil
defense four years before it was used, and the people were conditioned
for it and organized accordingly. Japan could not believe that attacks
would reach her shores and accordingly was ill-prepared in Civil
Defense procedures and facilities. Germany had only a partial con-
ception of the needs and was hampered by administrative muddles.
It should be said that while civilian defense in Ihis country in
World War II was not called upon for action against enemy attack, it
served many useful purposes. It is not forgotten that when air raid
wardens patrolled the streets during blackouts, there were fewer
crimes. It is worthy of remembrance that auxiliary firemen and
policemen who served ably without pay probably saved the taxpayers
millions of dollars. It is still of record that forest fire fighters trained
by Civilian Defense continue to function in useful activities. It is a
record to be remembered that ten million people enrolled in Civilian
Defense were mobilized for action and performed many useful tasks.
ESSENTIAL FUNCTIONS OF CIVIL DEFENSE
A well organized Civil Defense program will make maximum use
of existing facilities and services, such as the police and fire depart-
ments of cities and towns. But, in achieving a state of readiness for
any eventuality, it will have many new activities for which there is
not normally an organization or plan. In addition, every phase of a
sound Civil Defense program would be geared to the possible need—in
all respects a different conception than exists in peacetime activities in
any field.
This report presents in detail what the Civil Defense organization
should be. But first a brief description of what its functions and
operations should be, may be indicated as a guide to the need for or-
ganization. They range from technical services requiring specialists
in variousfields,t o operating and organizational services, to training
and information and research. All are essential to a thorough-going
Civil Defense operation.
The simple narration of the functions of various services and units
of a competent Civil Defense organization demonstrates the inter-
relation of all its parts, and the size of the task it may have to perform.
If a community suffered a major attack, whatever its nature-
atomic, chemical, incendiary, high explosives or other special
weapons—the organized parts of civil defense would go into action.
