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The National Plan for Civil Defense and Defense Mobilization, Annexes #14-16
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The National Plan for Civil Defense and Defense Mobilization, Annexes #14-16
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THE NATIONAL PLAN
for
Civil Defense and Defense Mobilization
Annex 14
DAMAGE ASSESSMENT
The Lights Dwight D.
UNUM
Executive Office of the President
OFFICE OF CIVIL AND DEFENSE MOBILIZATION
IAZONZZ HT
M bas complail HvD
- round
30/1/20
DANA
CRIB
IMP
Preface
This annex supports and amplifies the National
Plan for Civil Defense and Defense Mobilization, partic-
ularly Part V, Section E, Preparations for Damage
Assessment. It states the assumptions under which
preparations for damage assessment are made; the
general responsibilities assigned to Federal, State, and
local governments; the elements of damage assessment;
the specific functions to be undertaken in areas of non-
military defense; and the methods for executing the
program.
LDMO I-26 established the basic guidance for the
National Damage Assessment Program.
Auxiliary documents will be issued as necessary
and will be subordinate to and compatible with this
The Dwight D.
annex and the National Plan.
The annex is published in looseleaf form in order
that pages may be added or replaced easily whenever
revisions are made.
Penaldingh
Director
Office of Civil and Defense Mobilization
Issued March 1960
[iii]
Contents
Page
PREFACE
iii
I. DEFINITION
1
II. ASSUMPTIONS
1
III. GENERAL RESPONSIBILITIES
1
A. Federal
1
B. State and Local
3
IV. ELEMENTS OF DAMAGE ASSESSMENT
4
A. General.
4
B. Application of Assessment
Techniques
4
C. Reporting
5
V. FUNCTIONS
6
A. Reporting Weapons Detonations
6
B. Assessment Operations
6
C. Training
7
D. Research and Development
7
VI. EXECUTION
8
A. Office of Civil and Defense
Mobilization
8
B. Other Federal Agencies
9
C. State and Local Governments
10
[iv ]
ANNEX 14
DAMAGE ASSESSMENT
I. Definition
Damage assessment is the process of determining
the effects of enemy attack upon the human and material
resources of the United States. Its purpose is to deter-
mine the amounts and locations of remaining national
resources so that intelligent decisions for the survival
and recovery of the Nation can be made.
II. Assumptions
Initial damage assessment would have to be based
upon fragmentary attack reports. Even so, such infor-
mation would be useful for decisions related to post-
a
attack actions. Further assessments to provide more
Dwight
effective postattack survival and recovery measures
The
Ligistry
would be developed as more accurate attack reports
are received.
III. General Responsibilities
A. Federal
1. Office of Civil and Defense Mobilization
OCDM is responsible for insuring overall
leadership to the Federal, State, and local gov-
ernments in the development of all types of
machine and manual damage assessment sys-
tems, and for coordination of damage assess-
ment activities.
¹See Annex 1, Planning Basis.
[1]
Annex 14
2. Other Federal Agencies
a. All Federal departments and agencies are
responsible for:
(1) Supporting the National Damage Assess-
ment Program and developing a damage
assessment capability for their respec-
tive purposes.
(2) Supplying resource information to
OCDM, as mutually determined to be
necessary, on places and types of struc-
tures where resources are located, on
seasonal fluctuations of quantities of
resources, and on other pertinent factors.
(3) Reporting to the OCDM Classified Loca-
tion, through their own or OCDM chan-
nels, information on nuclear detonations.
b. The Department of Defense is also respon-
sible for providing:
(1) Weapons detonation data, known as
NUDET data, to OCDM for damage
assessment purposes."
(2) Technical information pertinent to non-
military biological and chemical warfare
(BW and CW) defense for use in dam-
age assessment.
C. The Department of Health, Education, and
Welfare and the Department of Agriculture,
under delegated authority, are also respon-
sible for providing information on the
detection and identification of BW and CW
2See Annex 7, Role of the Military.
³See Annex 24, National Biological and Chemical Warfare De-
fense Plan.
[2]
Annex 14
agents for use in the development of assess-
ments of the effects on population, animals,
crops, and other resources.
d. The Department of Commerce is also respon-
sible for providing:
(1) Wind data for use in estimating fallout
effects of nuclear detonations.
(2) Climatological information applicable to
BW and CW defense.
(3) Postattack censuses of population and
important resources.
B. State and Local
State and local governments are responsible for:
1. Developing and implementing damage assess-
ment systems best suited to meet their post-
attack needs and compatible with national
requirements.
D
2. Supplying information to OCDM on resources,
Dwight
OHL
SIGNED
State and local stockpiles, types of structures
where resources and stockpiles are located,
effects of evacuation on the location of the popu-
lation, and other factors.
3. Reporting nuclear detonation data, when avail-
able, to OCDM.
4. Reporting information on BW and CW attack,
through appropriate channels, to OCDM.
5. Conducting ground reconnaissance (and air re-
connaissance as appropriate) as soon as possible
after attack to determine more accurately the
effects of attack upon people and resources.
+Ibid.
"See Annex 5, Federal Delegations and Assignments, and Annex 23,
National Radiological Defense Plan.
[3]
Annex 14
IV. Elements of Damage Assessment
A. General
Until an automatic attack surveillance system is
developed, in the first few hours after attack great
reliance will be placed upon flash reports based on de-
tection devices and on visual observations of weapons
detonations. These fragmentary reports will be assem-
bled at each level of government in order to develop
as accurate a picture as possible of the effects within the
particular jurisdiction. These effects will be applied
by machine or hand assessment methods against data
on people and principal resources, to estimate what
people and resources are remaining.
As soon as possible, air reconnaissance will be car-
ried out by the Department of Defense and by State and
local governments as appropriate.
As soon as the radiological situation permits,
ground reconnaissance will be made by State and local
governments and by Federal agencies to determine by
observation what the exact situation is.
A later phase in this process will be the conduct of
detailed surveys or censuses of people and of important
resources.
B. Application of Assessment Techniques
Use of flash reports and application of machine or
hand assessment methods require a system composed of:
1. Locating the preattack population and resources
and measuring the relationship between these
locations and those of the detonation points.
(The location system generally used is based on
the coordinates of the Universal Transverse
Mercator-UTM-grid system.)
2. Applying predictions of the effects of nuclear
weapons and of BW or CW agents.
[4]
Annex 14
a. Nuclear weapons effects are divided into two
major groups: direct effects (blast, thermal,
and initial radiation) and fallout effects.
The relationships used to apply these effects
to population and other resources are known
as "vulnerability functions." These functions
are based on estimates of nuclear weapons
effects on population and structures, as de-
veloped by the Department of Defense, the
Atomic Energy Commission, and the Office
of Civil and Defense Mobilization.
b. The effects of BW and CW agents are di-
vided into two major groups: those affecting
humans and designed to produce death and
illness or to reduce the will to resist and to
minimize production capability; and those
employed against animals and crops and de-
signed to prevent long-term recuperative
ability. The vulnerability functions of these
.
weapons are being developed by the Depart-
ment of Defense, the Department of Health,
onl
Education, and Welfare, and the Department
of Agriculture.
c. These weapons effects data are combined
with the details of the attack pattern in order
to estimate the effects of the attack.
C. Reporting
1. Reporting nuclear attack data is the responsi-
bility of Federal, State, and local governments,
supported by the 3,000 stations of the Federal
Fixed Station Monitoring Network. The essen-
tial items of information include time of detona-
tion, location of ground zero, size of weapon, and
[5]
Annex 14
height of burst. Wind data necessary for pre-
dictions of damage from fallout are reported by
the Department of Commerce.
2. Reporting BW or CW attack data is primarily
the responsibility of the State and local govern-
ments. The State will evaluate the attack
within its boundaries, report to OCDM, and
advise local governments of the situation. The
local governments will report the situations to
the State and to contiguous local governments.
3. As analyses of the effects of attack are made,
each level of government is responsible for pro-
viding the next higher level with summaries of
these evaluations in the area with which it is
concerned. Conversely, each level of govern-
ment is responsible for providing lower levels
of government with information which will
affect their areas.
V. Functions
A. Reporting Weapons Detonations
1. Objective
To report detonation information required
in preparing rapid estimates of damage.
2. Action Required
Develop and maintain attack surveillance
systems providing, by automatic and other
methods, for detection and reporting of weapons
detonations.
B. Assessment Operations
1. Objective
To develop an integrated operational
damage assessment system at all levels of
government.
[6]
Annex 14
2. Actions Required
a. Establish and maintain an integrated na-
tional damage assessment system covering
Federal, State, and local governments and
including methods and procedures for report-
ing, to all levels of government, postattack
assessments of damage to population and
other resources.
b. Provide guidance to all levels of government
in the accepted measures and procedures for
damage assessment.
c. Provide data on the location of population
and resources for damage assessment.
d. Insure postattack capabilities for air and
ground reconnaissance.
C. Training
1. Objective
To enable government at all levels to attain
11.
operational readiness in damage assessment.
Dwight
2. Actions Required
BULL
a. Train observers to record and report detona-
tion data.
b. Train analysts in damage assessment
procedures.
c. Train observers to perform postattack
reconnaissance.
D. Research and Development
1. Objective
To insure that the maximum capability of
the system is developed both as to technical in-
formation and as to necessary equipment and
facilities.
2. Actions Required
a. Study methods for increasing the efficiency of
the electronic assessment system, as well as
[7]
Annex 14
methods of developing the most effective
manual assessment system.
b. Periodically prepare simulated attacks to test
the operational capabilities of the assessment
system.
C. Prepare vulnerability studies to provide esti-
mates of the probabilities of blast and radio-
logical contamination at specified points
throughout the United States.
d. Prepare vulnerability studies to provide esti-
mates of the effects of BW and CW agents
upon humans and agricultural and water
resources.
e. Develop the necessary equipment for provid-
ing prompt and accurate nuclear detonation
data.
f. Develop probability samples for use in post-
attack surveys of population and important
resources.
VI. Execution
A. Office of Civil and Defense Mobilization
Actions taken under damage assessment shall be
coordinated and directed by the Director, Office of Civil
and Defense Mobilization, in accordance with Part V,
Section E, of the National Plan and Annex 5, Federal
Delegations and Assignments.
OCDM shall:
1. Provide damage assessment methods-elec-
tronic, mechanical, and manual-for Federal
departments and agencies and for State and
local governments.
2. Provide statistics and data on the location of
resources for use at all levels.
[8]
Annex 14
3. Provide attack surveillance instruments and
reporting procedures for the Federal Govern-
ment's monitoring network.
4. Provide financial assistance through loan, grant,
transfer, or Federal Contributions programs
for the procurement of maps, related equipment
and supplies, and attack surveillance equipment.
5. Provide reporting procedures for an integrated
damage assessment program.
B. Other Federal Agencies
1. All other Federal departments and agencies
shall:
a. Develop compatible damage assessment sys-
tems in the detail required to meet their indi-
vidual needs.
b. Provide such statistics and other data as may
be mutually agreed to be needed by OCDM
for its assessments, and by the Federal de-
partments and agencies for their postattack
BUL
L
damage reports.
C. Provide such personnel and other support as
may be required and agreed upon.
2. The Department of Defense shall also:
a. Establish a nationwide attack surveillance
system.
b. To the extent feasible, further develop its
capability for providing postattack aerial
photo reconnaissance.
C. Furnish results of research and development
pertinent to nonmilitary BW and CW defense.
3. The Department of Commerce shall also provide
forecasts of likely fallout areas and of likely
"See Annex 38, Federal Assistance.
[9]
Annex 14
effects of winds on the distribution of BW and
CW agents, and prepare for postattack enumera-
tion of population and selected resources.
4. The Department of Health, Education, and Wel-
fare and the Department of Agriculture shall
also develop programs for determining the vul-
nerability functions of BW and CW agents and
for reporting attack data when these agents are
involved.
C. State and Local Governments
State and local governments will:
1. Under OCDM guidance, develop assessment
systems which will be best suited to meet their
specific needs and which will be compatible with
the overall system established by OCDM.
2. Furnish OCDM with copies of systems together
with maps, tabulations, and other materials
which are part of the systems.
3. Develop damage reconnaissance teams to pro-
vide ground or air surveys of the effects of attack
on population and resources, including reports
on damage to key facilities, estimates of the
number of persons killed and injured, and indi-
cations of the time required to restore facilities
and production.
4. Develop capability for observing and reporting
nuclear detonation data.
5. Develop capability for reporting information on
BW and CW attack.
U.S. GOVERNMENT PRINTING OFFICE O-1960
[10]
THE NATIONAL PLAN
for
Civil Defense and Defense Mobilization
Annex 15
COMMUNICATIONS
(IN TWO PARTS)
UNUM
a DMIGHT Library 641
Executive Office of the President
OFFICE OF CIVIL AND DEFENSE MOBILIZATION
DAY 3111
Tate 1170
Preface
This annex states specific responsibilities, policies,
criteria, methods, and procedures for carrying out the
telecommunication responsibilities of the Federal Gov-
ernment, the States and their political subdivisions, and
private organizations in support of the National Plan
for Civil Defense and Defense Mobilization. In two
parts, it states the broad course of nonmilitary action
necessary to implement effective operational communi-
cations and to manage the Nation's telecommunication
resources in an emergency.
Part One: Operational Communications sets forth
requirements, procedures, regulations, and restrictions
concerning all nonmilitary systems for transmitting, by
electrical communication, civil defense and defense
mobilization information and instructions within and
among governments and between governments and the
D.
Eisenhower
people-that is, operational communications and com-
Dwight
munications with the public.
The
Part Two: National Telecommunications, adapted
from Defense Mobilization Order IX-4, concerns
methods and measures for assisting the President in the
discharge of his responsibilities for management of
national telecommunication resources in an emergency
and summarizes procedures for obtaining radio fre-
quencies, international telecommunication services, and
domestic (common carrier) telecommunication services
in or for a national emergency.
[iii]
Auxiliary documents, including detailed proce-
dures, will be issued as necessary and will be subordinate
to and compatible with this annex and the National Plan.
The annex is published in looseleaf form in order
that pages may be added or replaced easily whenever
revisions are made.
Ceola Hough
Director
Office of Civil and Defense Mobilization
Issued February 1960
[ iv ]
Contents
Page
PREFACE
iii
Part One: Operational Communications
I. DEFINITIONS
1
II. ASSUMPTIONS
2
III. GENERAL RESPONSIBILITIES
3
A. Federal Government
3
B. State and Local Governments
4
C. Private Organizations
4
IV. FUNCTIONS
4
A. Operational Communications
4
The Dwight b
B. Communications to the Public
7
C. Tests and Exercises
8
D. Research
9
E. Training
9
V. EXECUTION
10
A. Federal Government
10
B. State and Local Governments
13
C. Private Organizations
14
[v]
Part Two: National Telecommunications
Page
I. DEFINITIONS
16
II. ASSUMPTIONS
16
III. GENERAL RESPONSIBILITIES
17
A. Federal Government
17
B. State and Local Governments
17
C. Common Carriers
17
D. Industry and Organizations
17
IV. PROCEDURES
18
A. Radio Frequencies
18
B. International Telecommunication
Service
26
C. Domestic Common Carrier Telecommuni-
cation Services
28
V. EXECUTION
30
[vi]
ANNEX 15
COMMUNICATIONS
Part One: Operational Communications
I. Definitions
A. Communications or telecommunications means
any transmission, emission, or reception of signs,
signals, writing, images, and sounds or intelligence of
any nature by wire, radio, visual, or other electromag-
netic systems.
B. Operational communications means the tacti-
cal communications required for initiating and directing
civil defense and defense mobilization actions.
C. Communications with the public is that com-
munications required for keeping the general public
informed and for directing the action of large segments
of the population in times of emergency.
D. Radio Amateur Civil Emergency Service
The Dwight of
(RACES) is a service designed to make efficient use
of the vast reservoir of skilled radio amateurs through-
out the Nation. Most of the States and larger commun-
ities have federally approved RACES communications
plans whereby amateurs enlisted in this plan are permit-
ted to operate as an emergency communications net-
work on certain specific frequencies during an alert,
natural disaster, or other condition, as directed by civil
defense authority.
E. CONELRAD (CONtrol of ELectromagnetic
RADiations) is a plan for optimum use of all radio
communications facilities without giving undue naviga-
tional aid to the enemy. A Radio Alert is initiated by
'See also definitions in Part Two, Section I. (A and B).
[1]
Annex 15
the Commander-in-Chief, North American Air Defense
Command. Through Air Force channels Key Broad-
cast Radio Stations are notified by the CONELRAD
alerting system. They in turn transmit an attention
signal which actuates CONELRAD Alert receivers in
all AM, FM, and TV stations. This is followed by the
announcement of the CONELRAD Radio Alert Mes-
sage. The stations having National Defense Emer-
gency Authorization will immediately shift their
frequencies to the CONELRAD frequency assigned to
them (640 or 1240 kc.) and will broadcast information
to the public under a plan prescribed for each particular
station. All other broadcast stations must leave the
air. These plans are SO designed that each station can
reach the maximum population within its area without
giving undue navigational aid to the enemy. Under
conditions of a CONELRAD Radio Alert, all radio sta-
tions are required to operate under specific CONELRAD
plans for the radio service involved.
II. Assumptions
A. An attack on the United States might seriously
disrupt communications within and among Federal,
State, and local governments, industry, and the public.
B. The resumption, restoration, and improvement
of the Nation's essential communications services and
facilities would be a priority prerequisite for carrying
out most civil defense and defense mobilization activi-
ties. This would require optimum use of the Nation's
remaining communication capability and facilities, in-
cluding the resources of amateur radio operators en-
rolled in the Radio Amateur Civil Emergency Service
(RACES).
²See Annex 1, Planning Basis.
[2]
Annex 15
III. General Responsibilities
A. Federal Government
The Federal Government is responsible for the
stimulation, leadership, guidance, and assistance nec-
essary to advance the communications needs of Federal
agencies, State and local governments, and private
organizations to meet their essential emergency com-
munications obligations. This responsibility entails:
1. Establishing and maintaining communications
for civil defense and defense mobilization pur-
poses, reasonably secure from attack effects,
a. Within and among Federal agencies having
emergency responsibilities.
b. Between the Federal Government and the
States.
2. Encouraging States and their political sub-
divisions to establish effective communications
systems, through technical and, where appro-
priate, financial assistance.
3. Providing stimulation, guidance, and assistance
The D. Ementional
to the management of domestic common carrier
communication services concerning measures:
a. To protect their physical property, operating
personnel, and management capability from
the effects of attack.
b. To facilitate the restoration of such facilities
after attack," including the free movement of
common carrier vehicles, personnel, equip-
ment, and supplies-both intrastate and
interstate.
³See Annex 4, Authorities for Civil Defense and Defense Mobilization,
and Annex 6, Federal Emergency Plans and Procedures.
*See Federal Contributions Manual AM25-1, Chapter 9.
"See Annex 11, Protection of Essential Facilities.
[3]
Annex 15
B. State and Local Governments
1. State governments are responsible for maintain-
ing at all times, reasonably secure from attack
effects, communications:
a. Among State agencies having emergency
responsibilities.
b. Between the State government and its polit-
ical subdivisions.
2. Local governments are responsible for maintain-
ing, reasonably free from attack effects, com-
munications for emergency operations.
C. Private Organizations
Private organizations are responsible for support-
ing civil defense actions by providing for the optimum
utilization, in accordance with applicable regulations,
of all their available communications facilities in times
of disaster, not only within and between their separate
organizations but also in coordination with such pro-
grams as the civil defense efforts may require.
IV. Functions
A. Operational Communications
1. Objectives
a. To provide the capability of communicating:
(1) Among all Federal and State agencies
for day-to-day operational communica-
tions.
(2) Among all Federal and State govern-
ment control centers (also known as
emergency operating centers - includ-
ing the relocated seat of government
of each State-for use in emergencies
and under disaster conditions.
All rules and regulations of the Federal Communications Commission
(FCC) pertaining to the use of nongovernment radio communication
facilities will remain in effect unless ordered otherwise by the Director,
OCDM. pursuant to the authority delegated by Executive Order 10705.
[4]
Annex 15
(3) Between State and local agencies having
emergency responsibilities in times of
disaster to carry on government
functions.
(4) Between and among all echelons of gov-
ernment and all industrial organizations.
b. To provide the capability of incorporating
the communications facilities and systems of
private organizations and individuals into
emergency plans in a manner that will best
serve the mutual interests of the govern-
ments and private organizations concerned.
C. To make optimum use of all radio communi-
cations facilities without giving undue
navigational aid to the enemy.
d. To provide communications for rapid dissemi-
nation of warning information.
2. Actions Required
a. Improve the present Federal interagency
system of communications by providing
hardened facilities, secure circuit routing,
and other emergency requirements.
b. Interconnect Federal communications sys-
LIGHTER small
tems both at national and regional levels
wherever feasible.
C. Develop a unified Federal communications
system to serve both the normal and emer-
gency needs of the civil departments and
agencies of the Federal Government in the
most effective and economical manner.
d. Improve the operational capability of the
OCDM National Communications System No.
1 (NACOM 1), consisting of private line
teletypewriter/telephone service intercon-
necting OCDM Operational Headquarters,
"See Annex 13, Warning.
[5]
Annex 15
OCDM Regional Offices, and State civil de-
fense operational headquarters.
e. Provide an OCDM National Radio Communi-
cations System (NACOM 2) at all OCDM and
State operational headquarters as an emer-
gency backup to NACOM 1.
f. Incorporate, as specific emergency require-
ments dictate, improved techniques and
equipment and required modes of transmis-
sion to secure maximum benefits from the
communications resources available.
g. Employ standardized procedures, and stand-
ardized message forms where practicable.
h. Equip all emergency operational communica-
tions systems insofar as practicable to trans-
mit intelligence by the maximum number of
methods (teletype, voice, crypto, facsimile,
computer data, etc.).
i. Provide for the use of the normal facilities
operated by those States and local agencies
of government having civil defense responsi-
bilities to the extent permitted by the regula-
tions applicable to the stations involved.
j. Designate State and local radio communica-
tions networks and systems which normally
have no civil defense responsibilities to per-
form specific civil defense missions in emer-
gency situations when permitted by the FCC
Rules.
k. Encourage privately owned services to take
the necessary preattack measures to protect
plant, equipment, personnel, and manage-
ment leadership. The systems should be
Section 10.9 of the FCC Rules and Regulations sets forth the regu-
lations pertaining to the use of public safety facilities in civil defense.
[6]
Annex 15
secure or protected type networks with the
capability of alternate routing or mobility to
facilitate reestablishment of circuits which
might be destroyed. The possibilities of
damage due to blast, fire, neutron radio-
activity, and radioactive fallout will be
considered in all plans.
1. Provide protected control centers equipped
with adequate communications for the receipt
and transmission of information and instruc-
tions essential to State and local emergency
operations.
m. Mobilize the resources and personnel of the
Nation's radio amateurs into the Radio
Amateur Civil Emergency Service (RACES)
program to augment existing State and local
communications.
B. Communications to the Public
1. Objective
To provide a capability for communications
during emergencies to the general public that
will allow appropriate government officials to
BUL
give necessary information and instructions to
the maximum number of persons concerned,
without giving undue navigational aid to the
enemy."
2. Actions Required
a. The Federal Government, with the assistance
of advisory committees, will provide guidance
to State and local authorities to assist in the
organization, engineering, and programing
of radio and TV broadcast stations and net-
works to accomplish the desired objectives
during emergencies.
See Annex 9, Public Information.
[7]
Annex 15
b. The Federal Government will provide funds
for program and control circuits to author-
ized CONELRAD broadcast stations to link
the stations to appropriate State and local
government control centers.
C. State and local governments will provide
emergency information and instructions to
the public via emergency broadcast facilities
arranged through the Federal, State, and
local governments and through advisory com-
mittees, which have been organized in many
areas. State and local civil defense author-
ities should work closely with these groups.
d. The Federal Government, with the coopera-
tion and guidance of industry, will establish
an emergency radio broadcast plan which can
be implemented in an emergency to provide
facilities for the President to broadcast mes-
sages to the public." This plan must be of
sufficient flexibility to allow the maximum
use of surviving broadcast facilities and in-
terconnecting communications channels, in-
cluding the use of remote pickup broadcast
equipment and interconnected and fully auto-
matic industrial microwave systems.
C. Tests and Exercises"
1. Objective
To determine the operational capability of
Federal, State, and local communications.
¹⁰An "Interim Plan for Continuity of Programing under CONEL-
RAD" has been published (FCC Release 67094).
"See Annex 39, Review, Tests, and Inspection. Tests and exercises
involving nongovernment radio facilities shall be in accordance with FCC
Public Notice 59-299.
[8]
Annex 15
2. Action Required
Develop and conduct tests and inspections
of the Nation's emergency communications fa-
cilities and operational personnel.
D. Research"
1. Objective
To develop facilities and data pertaining to
the needs of communications.
2. Actions Required
a. Establish requirements for communications
research.
b. Conduct research projects and field tests for
operational applicability.
E. Trainingᵀ⁸
1. Objectives
a. To provide trained personnel for operation of
all communications facilities at Federal,
State, and local levels.
b. To assure that all personnel in government
and industry having communications res-
à DMERIT Library BILL
ponsibilities are fully informed as to emer-
gency communications procedures.
C. To assure that all communications person-
nel are trained in protection and survival
methods.
2. Action Required
Develop and administer training and educa-
tion programs in the execution of emergency
communications responsibilities, functions, and
activities as set forth in this annex, including
programs for the protection and survival of
employees.
¹²See Annex 36, Research and Development.
¹³See Annex 37, Training and Education.
[9]
Annex 15
V. Execution
A. Federal Government
1. OCDM shall:
a. Provide policy direction and control for the
implementation of a unified system of com-
munications to serve the needs of the Federal
Government for day-to-day and emergency
operational communications.
b. Implement communications plans¹⁴ and pro-
grams for the nonmilitary defense of the
United States.
C. Mobilize the use of qualified nongovern-
mental personnel to augment the existing
communications staff of the Federal estab-
lishment.
d. Direct and coordinate measures necessary
to improve the emergency communications
facilities of the civil agencies of the Federal
Government.
e. Maintain, operate, and improve the OCDM
operational communications systems and
activate standby OCDM facilities in times of
emergency.
f. Provide financial and technical assistance in
the development of communications plans
and the establishment of State and local civil
defense communications systems." 15
g. Develop and institute tests and exercises,
following coordination with FCC, to deter-
mine the operational capability of national
emergency civil defense operational com-
munications facilities.
The word "plans" as used in this annex covers all phases of design,
implementation, and operation of such communications systems as are
necessary for the nonmilitary defense of the United States.
15See Annex 38, Federal Assistance.
[10]
Annex 15
h. Develop and establish training courses for
communications personnel at all levels of
State and local government.
i. Guide and assist State and local governments
in the execution of their communications
training and education programs.
j. Provide FCC with requirements pertaining
to development of CONELRAD plans for all
civil and State and local government com-
munications. (See the DOD-FCC-OCDM
Memorandum of Agreement concerning
CONELRAD.)
k. Develop and provide program source mate-
rial to State and local authorities for use in
civil defense programing of an emergency
nature by broadcast stations operating
under CONELRAD and post-CONELRAD
conditions.
1. Provide stimulation, guidance, and assistance
D.
to Federal departments and agencies, State
and local governments, and private organi-
BUL
zations concerning measures to:
(1) Protect their communications facilities
and operating personnel from the effects
of attack.
(2) Facilitate restoration and resumption of
service after attack.
2. The Federal Communications Commission shall:
a. Carry out that authority vested in the
President by Section 606 (c) of the Communi-
cations Act of 1934, as amended, as delegated
to the Commission in Executive Orders 10312
and 10438, with respect to radio stations, with
the exception of radio stations belonging to
and operated by any department or agency
[11]
Annex 15
of the United States, to minimize the use of
the electromagnetic radiations of such sta-
tions. (The plans of the Commission for
exercising its CONELRAD authority shall
not become effective until they have been
concurred in by the Secretary of Defense and
the Director of OCDM.)
b. Issue appropriate rules, regulations, orders,
and instructions and take such other action
as may be necessary to assure the timely and
effective operation of the plans to effect
the control of electromagnetic radiations
(CONELRAD) between 10 kilocycles and
100,000 megacycles.
3. The General Services Administration shall carry
out the provisions of Executive Order 9471 of
1944, Public Law 413 of 1946, and the Federal
Property and Administrative Services Act of
1949, to provide a fast, reliable, and economical
means of communications for the Federal
civilian activities.
4. Recommendations for changes in national
CONELRAD policy will be submitted by the
recommending agencies to OCDM and DOD for
consideration as to conformance with the intent
of subsection 606 (c) of the Communications Act
of 1934, as amended, and Executive Order 10312.
Information copies of such recommendations
will be submitted to FCC. Changes in CONEL-
RAD operating procedures, other than minor
changes in internal agency plans, will be coordi-
nated through existing command or liaison
channels with the Commander-in-Chief,
North American Air Defense Command
(CINCNORAD).
[12]
Annex 15
5. The head of each Federal department or agency,
with respect to stations belonging to and oper-
ated by such agency, shall, pursuant to the
authority vested in the President by section 305
of the Communications Act of 1934, as amended,
prepare and put into effect such plans as may be
necessary to minimize the use of electromagnetic
radiation of these stations in event of attack or
imminent threat thereof as an aid to hostile
aircraft, guided missiles, and other devices
capable of direct attack upon the United States.
Such plans shall not become effective until they
have been concurred in by the Secretary of De-
fense and the Director of OCDM.
6. Federal departments and agencies, in coordina-
tion with OCDM, shall develop their essential
emergency communications facilities as are
required to meet their defense mobilization
The Dwight e
responsibilities.
B. State and Local Governments
State and local governments will:
1. Improve their existing communications systems
to the maximum practicable and will augment
them with new systems and facilities as required
to meet the threat of nuclear attack.
2. Continue to improve or provide protected facil-
ities and increase the effectiveness and security
of the communications systems between the
State emergency operational centers and its
political subdivisions.
3. Provide protected facilities and systems for use
in local areas for carrying operational and sur-
vival information and directives.
4. Develop and implement communications plans
that include the communications requirements
[13]
Annex 15
for all emergency civil defense operational
services.
5. Encourage enrollment of personnel and expan-
sion of facilities for the Radio Amateur Civil
Emergency Service (RACES) and further incor-
porate this valuable communications resource
into basic operational plans.
6. Develop and institute periodic tests, inspections,
and exercises to determine the operational
readiness and capabilities of State and local
communications systems and activate these
systems in times of actual emergency.
7. Develop and implement plans for the emergency
use of broadcast facilities.
8. Provide emergency information and instruc-
tions to the public.
9. Provide and conduct training and educational
programs to develop competent communications
operators and maintenance personnel.
10. Utilize the facilities and personnel of nongov-
ernment entities in operational communications
plans to the greatest extent possible.
C. Private Organizations
1. Private organizations will:
a. Cooperate with appropriate government
agencies for planning and implementing the
use of communication facilities necessary
for:
(1) The continued function or restoration
of essential elements of the national
economy.
(2) The augmentation of existing govern-
ment communications facilities where
appropriate for the execution of civil
defense missions.
[14]
Annex 15
b. Protect their communications facilities and
operating personnel against the effects of
attack.
c. In coordination with State and local govern-
ments, participate in tests and exercises to
develop emergency operational capabilities.
2. Under conditions of a CONELRAD radio alert,
all radio stations are required to operate under
the specific CONELRAD plans for the radio
service involved.
a DIME Library onl
[ 15 ]
Annex 15
Part Two: National Telecommunications
I. Definitions
A. Government communications facilities are
those owned and operated by the United States Govern-
ment. Government radio facilities use frequencies
assigned by the President or assigned under his dele-
gated authority.
B. Nongovernment communications facilities are
those owned or leased by and operated by other than
the United States Government. Nongovernment radio
facilities are licensed by and operate under the Rules
and Regulations of the Federal Communications Com-
mission (FCC) 17 and include:
1. Common carrier communications, provided by
public utilities engaged in rendering public com-
munications services for hire in interstate or
foreign communication by wire or radio.
2. State (or political subdivisions thereof) com-
munications, provided by facilities owned or
leased by and operated by such entities.
3. Private communications, provided by facilities
owned or leased by and operated by entities
other than those mentioned above.
II. Assumptions
A. As soon as possible after attack a Federal emer-
gency communications agency would be established by
the President, whose pertinent authority19 would be
delegated to the head of that agency.
"Telecommunications" is defined in Part One, Section I.A of this
annex. The definitions set forth in Section 2.1 of the FCC Rules and
Regulations are also applicable.
"See Executive Orders 10312 and 10705.
¹⁸See Part One of this annex and Annex 1, Planning Basis.
¹⁹See Section V.A below.
[16]
Annex 15
B. Until such an emergency agency could be estab-
lished, the actions and procedures published herein
would be applied under the authority residing in the
Director, OCDM, pursuant to the provisions of Execu-
tive Order 10705.
III. General Responsibilities
A. Federal Government
The Federal Government is responsible for plans,
directives, and procedures to carry out the responsibil-
ities of the President for the control over and priority
use of telecommunications in time of war emergency
and to the extent feasible making these plans known to
government, industry, and the public in advance of an
emergency.
B. State and Local Governments
State and local governments shall assure that com-
munication plans developed under their responsibilities
are compatible with known Federal plans for the emer-
The Dwight O.
gency control and use of national telecommunication in
order that State and local actions will not be disruptive
to the overall national telecommunication effort.
C. Common Carriers
Communication common carriers are responsible
for planning for the operation of their networks and
facilities during war emergency in conformance with
known national telecommunication plans and objectives.
D. Industry and Organizations
Industry and private organizations are responsible
for taking into account, and incorporating in plans for
postattack operations, known national plans for the
control and use of national telecommunication, particu-
larly those priority systems for public telephone calls
and telegraph messages, and for the resumption of
intercity private line service.
[17]
Annex 15
IV. Procedures
A. Radio Frequencies
1. Control in an emergency-The use of radio
frequencies between 10 kilocycles and 100,000
megacycles during the continuance of a war in
which the United States is engaged will be gov-
erned by the Director, OCDM, or his successor
emergency communications agency (pursuant
to the delegated authority cited in Section V.A
below).
2. Scope-The procedures set forth below are ap-
plicable to all use of radio frequencies between
10 kilocycles and 100,000 megacycles. They do
not supersede or revise the provisions and pro-
cedures contained in mobilization plans for the
use of radio frequencies.
3. Implementation-The procedures will be imple-
mented within the framework of the following
conditions:
a. The United States will continue the policy
that a basic guide to follow in the normal
assignment and use of radio frequencies for
transmission purposes is the avoidance of
harmful interference. The avoidance of
harmful interference is the responsibility of
each frequency-assignment authority and
each user of frequencies. Each user of fre-
quencies is responsible for determining
whether prior coordination is necessary and
for carrying out appropriate coordination be-
fore taking a frequency into use.
b. All outstanding authorizations by the
Interdepartment Radio Advisory Committee
(IRAC) to Government radio stations will
[ 18 ]
Annex 15
remain in effect unless ordered otherwise by
the Director, OCDM, or his successor emer-
gency communications agency.
C. Rules and regulations of the Federal Com-
munications Commission (FCC) pertaining
to the use of radio frequencies will remain in
effect unless ordered otherwise by the Direc-
tor, OCDM, or his successor emergency
communications agency.
d. The Director, OCDM, or his successor emer-
gency communications agency, will:
(1) Publish and distribute, insofar as it is
practicable, policies, standards, instruc-
tions, procedures, and information on
frequency usage for the guidance of all
concerned. (This information has been
published in DMO IX-3 and in annexes
to DMO IX-4, and is available from
D.
OCDM.)
Dwight
Eisenhower
(2) Receive requests for assignment of fre-
OHI
quencies, review such requests, accom-
plish necessary additional coordination,
consider all pertinent views and com-
ments on proposed uses of frequencies,
and grant or deny, as appropriate, the
assignment of such frequencies.
(3) Monitor the frequency coordination
process and expedite as necessary.
(4) Adjudicate conflicting requests for fre-
quencies or conflicting comments on pro-
posed frequency usage.
(5) Inform promptly all agencies of
decisions.
e. Because the technically complex task of co-
ordinating and assigning radio frequencies
can be performed more effectively by the
[ 19 ]
Annex 15
highly skilled individuals normally represent-
ing their agencies on the IRAC Frequency
Assignment Subcommittee (FAS), it is plan-
ned, by mutual agreement with the agencies
concerned, that the Government agencies will
detail their FAS representatives to OCDM,
or its successor emergency communica-
tions agency, immediately upon engagement
in a war, to assist in the assignment of
frequencies.
4. Specific Procedures
a. Federal agencies, including the Military
Services in instances not provided for other-
wise, and nongovernment entities having
need for assignment of frequencies for new
or additional radio operations or for modifi-
cation of outstanding authorizations which
would involve a change in the frequency
usage pattern, shall present such require-
ments, together with nominated frequencies
and a statement of coordination accom-
plished, in accordance with the following
procedures:
(1) United States, its territories, and
possessions:
(a) U.S. Federal agencies, including the
Military Services in instances not
provided for otherwise, shall pre-
sent their requirements, together
with nominated frequencies and a
statement of coordination accom-
plished, to the Director, OCDM, or
his successor emergency communi-
cations agency. Necessary coordi-
nation with other users of radio will
[ 20 ]
Annex 15
be accomplished insofar as practi-
cable before presenting such re-
quirements.
(b) The Department of Defense will
keep the Director, OCDM, or his suc-
cesssor emergency communications
agency, informed of military use of
radio frequencies under delegated
or broad assignment authority.
(c) Nongovernment entities will con-
tinue, as heretofore, to present
applications to the Federal Com-
munications Commission (FCC).
(2) United States Theaters of Operation:
Dwight
(a) All requests for assignment, coordi-
BILL
nation, and use of radio frequencies
within U.S. Theaters of Operation
(worldwide, including the United
States, its territories, and posses-
sions) shall be in accordance with
procedures prescribed by the Secre-
tary of Defense.
(b) The procedures established by the
Secretary of Defense for use in U.S.
Theaters of Operation will include
provision for appropriate coordina-
tion with the Director, OCDM, or his
successor emergency communica-
tions agency, and with other U.S.
Flag use²" of frequencies in exter-
ritorial areas.
(3) Exterritorial Areas:
(a) All U.S. Flag use of radio frequen-
cies in exterritorial areas shall be
20"Flag use" means anywhere a United States flag is flown.
[21]
Annex 15
coordinated with the Director,
OCDM, or his successor emergency
communications agency, and with
other U.S. Flag uses of frequencies
by the entity responsible for the
radio operation.
(b) The Department of State will co-
ordinate with the Director, OCDM,
or his successor emergency com-
munications agency, before concur-
ring in the use or change of use
of frequencies by U.S. common
carriers operating in exterritorial
areas.
(c) The Department of the Interior will
coordinate with the Director, OCDM,
or his successor emergency com-
munications agency, before author-
izing the use or change of use of
frequencies in the Trust Territory
of the Pacific Islands.
(d) The Department of Defense will co-
ordinate with the Director, OCDM,
or his successor emergency com-
munications agency, concerning the
use or change of use of frequencies
in the Panama Canal Zone.
(e) The United States Information
Agency will coordinate with the
Director, OCDM, or his successor
emergency communications agency,
with U.S. Theater Commanders,
and with host countries before
taking frequencies between 5 and
27 megacycles into use for broad-
cast purposes.
[ 22 ]
Annex 15
b. Requests for frequency assignments. Re-
quests by Government agencies for frequency
assignments will be submitted in the format
of Form OCDM-88 (revised December 1958),
normally used in applying to the IRAC.
(1) In applications by mail or pouch, Form
OCDM-88 will be completed in its en-
tirety and submitted in duplicate. The
prior coordination effected with inter-
ested agencies and their comments will
be indicated thereon. The applicant
will address a copy of the request, insofar
as practicable, to each interested agency,
D.
indicating on the submission to OCDM,
DIMIST
or its successor emergency communica-
641
Lighter
tions agency, the distribution attempted.
(2) In applications by telephone or teletype
messages, Form OCDM-88 will be used
as a guide. Information about inter-
agency coordination effected will be in-
cluded in the message.
c. Interagency coordination:
(1) Interagency coordination of requests for
assignment of frequencies may be initi-
ated by the applicant or by the Director,
OCDM, or his successor emergency com-
munications agency, in writing or by
means of electrical communication. In
instances where the applicant is unable
to communicate with interested agencies
or agency response has not been indi-
cated on the application, the Director,
OCDM, or his successor emergency com-
munications agency, will try to accom-
plish the coordination.
[23]
Annex 15
(2) Each agency requested to comment on
a proposed assignment will respond with-
in 24 hours, giving final comments or
requesting additional time. Request
for additional time will be accompanied
by the reason for delay. Requests for
coordination will be acted on in keeping
with the urgency indicated in the
request.
(3) Agency comments on frequency requests
by other agencies will be constructive in
nature and realistic in light of the situa-
tion. Frequency sharing, on a time or
geographical basis, will be followed
wherever practicable. Alternate fre-
quencies will be suggested when use of
the nominated frequency is considered
to be impractical. Reasons for noncon-
currence in a proposal will be given.
Each agency commenting will address
comments to each agency addressed in
the initial request.
(4) Coordination necessary with Theaters of
Operation or the military services of our
allies will be accomplished, as appropri-
ate, by the Department of Defense with-
out specific request other than the initial
coordination request to the Department.
(5) Coordination necessary for U.S. Flag
use in exterritorial areas, except in U.S.
Theaters of Operation, will be accom-
plished by the interested U.S. Govern-
ment agency with the Director, OCDM,
or his successor emergency communi-
cations agency, with other U.S. Govern-
[24]
Anner 15
ment agencies in exterritorial areas,
and with host countries likely to be
affected, through channels of communi-
cation usually employed.
(6) The coordination process will be moni-
tored by the Director, OCDM, or his
successor emergency communications
agency, and expedited as necessary.
(7) Direct communication between Frequen-
cy Coordinators of the Government
departments and agencies on technical
D.
matters involved in coordination of
Dwight
frequencies is authorized. Communica-
BILL
L
tions concerned with frequency coordi-
nation matters should be addressed to
the department or agency, making use
of internal address indicators.
(8) The agency making the final decision in
the use of a frequency, normally the
Director, OCDM, or his successor emer-
gency communications agency, shall
inform all agencies that have partici-
pated in the coordination of a particular
frequency use, or have a need to know,
of that decision.
d. Assignment of frequencies:
(1) The Director, OCDM, or his successor
emergency communications agency, will
review requests for assignment of
frequencies, accomplish necessary addi-
tional coordination, consider all perti-
nent views and comments on proposed
uses of frequencies, and grant or deny, as
appropriate, the assignment of such
frequencies.
[25]
Annex 15
(2) All concerned will be informed promptly
of decisions by the Director, OCDM, or
his successor emergency communica-
tions agency.
B. International Telecommunication Service
1. Control in an emergency-The exclusive use,
by lease or otherwise, of common carrier inter-
national radio and cable channels or transmit-
ting facilities will be governed by the Director,
OCDM, or his successor emergency communica-
tions agency (pursuant to the delegated author-
ity cited in Section V.A below).
2. Scope-These procedures provide a method for
the submission of wartime requirements for
telecommunication channels between the United
States, its territories and possessions, and over-
seas or foreign points which are intended for
satisfaction by employment of other than Gov-
ernment-owned facilities. The procedures do
not supersede or revise the provisions and
procedures contained in mobilization plans for
the use of international telecommunication
channels.
3. General procedure-Federal agencies having
need for the telecommunication facilities which
fall into the above category for use in the event
of an emergency shall present such require-
ments to OCDM, or to its successor emergency
communications agency.
4. Department of Defense:
a. The Department of Defense will assume the
responsibility for reviewing and coordinating
the method of satisfying and funding for all
military requirements for channels of com-
munication such as heretofore outlined,
[26]
Annex 15
including military requirements for overseas
bases, NATO, SEATO, and other foreign
countries.
b. The Department of Defense will approve
all such requirements prior to transmittal for
consideration.
5. Department of State:
a. The Department of State will assume the
responsibility of receiving and reviewing for
completeness and appropriateness, including
funding, any requirements other than mili-
tary falling within the aforementioned cate-
gories and emanating from foreign countries.
The LICENSE Dwight ?
b. The Department of State will approve all
such requirements prior to transmittal for
consideration.
6. Others:
a. In an emergency those entities other than
Federal agencies having need for telecom-
munication facilities which fall into the above
category shall present their requirements to
the common carrier that would normally
provide the service.
b. The common carrier on whom the demand
for service has been placed will, in turn,
refer the request to OCDM, or its successor
emergency communications agency, via the
Federal Communications Commission, for
consideration.
7. Office of Civil and Defense Mobilization-
OCDM, or its successor emergency communica-
tions agency, will assume the responsibility for
coordinating and integrating, when practicable
within national mobilization plans, requirements
under the foregoing categories which are pre-
sented to it, making use of the knowledge,
[27]
Annex 15
information, and advice of the Federal Com-
munications Commission in the process of
satisfying requirements which have been pre-
sented, with due regard for the facilities which
must remain under the control of the commercial
companies and those which must be generally
available to the public and the Government in
the degree considered necessary.
C. Domestic Common Carrier Telecommunication Services
1. Planning basis-The principle which has been
followed in establishing a procedure for the
utilization of the Nation's domestic telephone
and telegraph services is that the common car-
rier (Bell System, Independents, Western
Union) is the only entity physically capable of
satisfying demands for nationwide service.
Consequently, demands for domestic telecom-
munication service should always be made
initially to the common carrier that normally
provides the service. Based upon this principle,
the Government, in cooperation with industry,
has completed programs for the priority use of
the Nation's telephone and telegraph systems
and for the priority resumption of intercity
private line service when interrupted. These
programs have been promulgated and are in
voluntary use throughout the Nation today,
and their application will be mandatory in a
situation under which the country is attacked.
(Issued in DMO IX-4 as Annex 3. This informa-
tion will be issued as an appendix to Annex 15.)
2. Telephone calls and telegraph messages pre-
cedence systems:
a. The Precedence Systems for Public Corres-
spondence telephone calls, TWX, and tele-
graph messages essential to the national
[28]
Annex 15
defense and security have been made avail-
able on a national basis in order that vital
information may be transmitted throughout
the country without delay during periods of
extreme stress.
b. The degree of priority to be accorded such
public correspondence is furnished to the sup-
plier of service in accordance with the user's
interpretation of the degree of urgency. The
user will be responsible in any postemergency
review for the priorities which he has invoked.
D.
3. Resumption of private line service priority
Dwight
system-The Priority System for the Resump-
The
tion of Intercity Private Line Service provides
for a procedure in which certification of a private
line within a priority category is made by the
user to the common carrier furnishing the serv-
ice. Certifications, to be effective, must be made
in advance and should be maintained in a cur-
rently corrected status. These certifications
will form the basis upon which a determination
may be made to govern the degree of priority
under which such service is to be restored.
(Certifications are received by the common
carriers.)
4. New or additional telephone or private line
service:
a. Requests for new or additional telecommuni-
cation service, including private line, TWX,
and telephone service, should be submitted
directly to the common carrier which normally
furnishes the service.
b. Demands which impinge upon the carrier's
ability to furnish essential service, because
they would place a strain upon existing man-
power, available equipment, and other
resources needed and consumed in the course
[ 29 ]
Annex 15
of furnishing essential service, will be re-
ferred to OCDM, or its emergency communi-
cations agency, for decision, with a certified
outline of necessity which will describe the
applicant's proposed use of the service
requested.
V. Execution
These Procedures are applicable under the Presi-
dent's authority contained in subsection 305 (a) and
subsections 606 (a), (c), and (d), of the Communica-
tions Act of 1934, as amended," delegated by Executive
Order 10705 to the Director of the Office of Civil and
Defense Mobilization, and by the Director, OCDM, to his
successor emergency communications agency.
1. The delegated authority under subsection
305 (a) and 606 (a) may be exercised only during
the continuance of a war in which the United
States is engaged.
2. The delegated authority under subsections
606 (c) and 606 (d) may be exercised only upon
proclamation by the President that there exists
a state of war involving the United States.
B. These Procedures shall be applied upon order of
the Director, OCDM, or his successor emergency com-
munications agency, announcing the assumption of
control over national telecommunications pursuant to
Executive Order 10705, following a proclamation by the
President that there exists a state of war involving the
United States. Such an order may be issued by the
Director, OCDM, in advance of an emergency or
proclamation, as a contingent order to become effective
upon Presidential proclamation or upon attack.
Subsection 305 (a) is concerned with assignment of radio fre-
quencies to U.S. Government stations; subsections 606(a), (c), and (d)
pertain to control over and priority use of telecommunications in time
of war.
[30]
* U.S. GOVERNMENT PRINTING OFFICE O-1960
THE NATIONAL PLAN
for
Civil Defense and Defense Mobilization
Annex 16
MAINTENANCE OF LAW
AND ORDER
The D. Elsanhower LIBITE
SUNUM
Executive Office of the President
OFFICE OF CIVIL AND DEFENSE MOBILIZATION
илич ЛАЙОГТАЙ
101
noitsvilidoM bas livi)
at zonnA
WAJ ЯО
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online
DIA 1000 RO 301910
Preface
This annex supports and amplifies the National
Plan for Civil Defense and Defense Mobilization, par-
ticularly Part V, Section G, Maintenance of Government,
Law, and Order. It states the principles, responsibilities,
requirements, and broad courses of action for the de-
velopment of maintenance of law and order in a civil
defense emergency.
Auxiliary documents, including prototype State
and local operations plans, will be issued when neces-
sary and will be subordinate to and compatible with the
National Plan and this annex.
The annex is published in looseleaf form in order
that pages may be added or replaced whenever revi-
The D. Eisenhower LIBIRTY
sions are made.
Ceot Hongh
Director
Office of Civil and Defense Mobilization
Issued November 1959
[iii]
Contents
PAGE
PREFACE
iii
I. DEFINITION
1
II. ASSUMPTIONS
1
III. GENERAL RESPONSIBILITIES
2
A. Public
2
B. State and Local
2
C. Federal
3
IV. FUNCTIONS
7
V. EXECUTION
9
A. State and Local Government
9
B. Federal Government
11
[ iv ]
ANNEX 16
MAINTENANCE OF LAW AND ORDER
I. Definition
For the purpose of this annex, "maintenance of
law and order" means preservation of the essential
functions of government and the protection of life and
property through the enforcement of laws, rules, and
regulations.'
II. Assumptions
A. A nuclear attack upon the United States would
lead to conditions of public disorder, confusion, and dis-
a Library OUL
tress that would far exceed the ordinary capabilities of
law enforcement bodies to maintain law and order; it
would create many new and unforeseeable problems
relative to the control and care of the population.
B. Under national emergency conditions, gover-
nors of States and chief executives of local governments
would assume direct operational control of all the gov-
ernment and civilian forces and resources subject by
law to their authority, including Federal employees and
resources made available to State and local govern-
ments.
1 See Annexes 8, Preparations for Continuity of Government; 12,
Directed Movement; and 22, Explosive Ordnance Reconnaissance.
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Annex 16
C. Law enforcement functions, including judicial
proceedings, in a national emergency would be carried
out according to the requirements of law and, to the
extent feasible, in accordance with established and
accepted practices and procedures, including those
applicable in relations between State and local govern-
ment enforcement bodies, and enforcement and investi-
gative bodies of the Federal Government and military
services.
III. General Responsibilities
A. Public2
It is the responsibility of every individual:
1. To know laws, rules, and regulations which are
effective in emergency situations and comply
with the lawful directions of duly constituted
authorities.
2. To assist law enforcement authorities in the
performance of specific emergency tasks when
requested by such authorities.
B. State and Local
1. Local government is the basic entity responsible
for the maintenance of law and order.
2. State government is responsible for supporting
local police services in emergency as the situa-
tion allows and for assisting and coordinating
emergency law enforcement planning of its
political subdivisions.
3. State and local governments are responsible for
aiding in the enforcement of Federal operations
and emergency measures.
2 See Annex 2, Individual Action.
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Annex 16
C. Federal
1. OCDM
The Office of Civil and Defense Mobilization is
responsible for:
a. Developing basic principles and procedures
for police services in national emergency, in-
cluding:
(1) Measures for mobilization, organization,
and operations.
(2) Standards for operations between the
different geographical and political jur-
isdictions.
b. Coordinating Federal agency participation in
State and local planning and organizing, and
developing Federal capability for assistance
and support to State and local government
operations.
D. The Eisenhawer
2. Other Federal Agencies
a. The Federal Bureau of Investigation has the
general responsibility for the investigation of
espionage, sabotage, and subversive activities
within the United States under the security
program, as defined by law and by Executive
orders. The President of the United States,
by Executive directives in 1939, 1943, and
1950, established the FBI's basic responsibility
in the internal security field and also requested
all loyal citizens, patriotic organizations, and
3 See Annex 5, Federal Delegations and Assignments. These Federal
agency responsibilities pertain mainly to general enforcement activities
and do not include specialized enforcement agencies which have regulatory
programs, such as the Department of Agriculture or the Interstate Com-
merce Commisson.
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Annex 16
all law enforcement officers to assist the FBI
in carrying out these duties by promptly
reporting directly to the FBI all information
which might relate to espionage, sabotage,
and subversive activities. In addition, the FBI
is responsible for investigating all alleged or
suspected criminal violations of the Atomic
Energy Act, including the illegal import or
export of fissionable material, the illegal pos-
session or transportation of fissionable mate-
rial, and the illegal transfer or possession of
any equipment or device utilizing fissionable
material or atomic energy as a military
weapon.
b. Treasury Department responsibilities perti-
nent to maintenance of law and order are as
follows:
(1) The Bureau of Customs has the responsi-
bility for detecting the entry of contra-
band into the United States, as well as the
export of restricted materials from this
country. This includes arms, ammunition,
and implements of war which require
licenses issued by the Department of State
for their importation or exportation;
articles covered by the Atomic Energy
Commission; other critical materials cov-
ered by the Export Control Act which are
licensed by the Bureau of Foreign Com-
merce of the Department of Commerce;
gold shipments which require an import
or export license issued by the Bureau of
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Annex 16
the Mint under the Gold Reserve Act; and
narcotic drugs which require import or
export licenses issued by the Federal Nar-
cotic Control Board under the provisions
of the Narcotic Drug Import and Export
Act.
(2) The Internal Revenue Service Alcohol
and Tobacco Tax Division enforces the
internal revenue laws relating to alcoholic
liquors for both industrial and beverage
purposes, tobacco and tobacco products,
certain firearms tax laws, the Federal
Alcohol Administration Act, the Liquor
Enforcement Act of 1936, and related
laws.
(3) The Bureau of Narcotics is charged with
the investigation, detection, and preven-
D.
tion of violations of the Federal narcotic
and marihuana laws and of the Opium
Dwight
Poppy Control Act of 1942, and related
BILL
statutes.
(4) The U. S. Secret Service is responsible
for the protection of the President, the
members of his immediate family, and
the Vice President; and the suppression
of counterfeiting of currency, Govern-
ment checks, and other Government se-
curities.
(5) The United States Coast Guard has the
primary responsibility for the security
and safety of the Nation's harbors and
port facilities, including the shipping
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Annex 16
therein, and for the safety of life and
property in waters subject to the juris-
diction of the United States, both in peace-
time and war. In war, or when the Presi-
dent SO directs, the Coast Guard operates
as a service of the Navy and carries out
this responsibility in close coordination
effected by the Navy.
c. The Department of Commerce acts as a clear-
ing house for businessmen, scientists, public
officials, and private citizens who want the
views of appropriate government agencies
regarding the advisability of releasing or with-
holding specific technical information in their
possession.
d. The Federal Communications Commission
has the responsibility for detecting the opera-
tion of unauthorized and clandestine radio
transmitting sets within the confines of the
United States and its Territories and Posses-
sions.
e. The Atomic Energy Commission has the
responsibility for the physical security of our
atomic installations and for the security of
personnel and of classified documents and
records within the confines of these installa-
tions.
f. The Department of Defense, through its oper-
ating agencies, is responsible for:
(1) The security of military installations and
facilities and for the security of military
areas when established.
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Annex 16
(2) Assisting in the physical security of the
Nation's industrial plants engaged in the
manufacture of materials vital to the
defense effort, in accordance with policies
formulated by the National Security
Council and as prescribed in Executive
Order 10421, as amended.4
g. General Services Administration has the re-
sponsibility and authority for maintenance of
law and order and the physical protection for
all federally owned facilities under its control.
IV. Functions
A. The major functions in maintenance of law and
order in a national emergency are:
. Library 0914
1. General police administration and operations.
2. Emergency highway traffic control and super-
vision (covered by Annex 12, Directed Move-
ment).
3. Security and protection of vital facilities and
resources (Annex 11).
4. Enforcement of economic stabilization meas-
ures, as required and as feasible, in support of
Federal regulations.
5. Explosive ordnance reconnaissance (Annex 22).
6. Continued functioning of local, State, and Fed-
eral courts.
B. Courses of action in carrying out these func-
tions include the following:
4 See Annex 11, Protection of Essential Facilities.
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Annex 16
1. Strengthening of capabilities of existing reg-
ular forces of State and local government law
enforcement departments by reorganization
where needed and by additional and advanced
training for all police, particularly in command,
civil defense organization, administration, and
operations.
2. Expansion of law enforcement capabilities by
recruiting, training, and equipping auxiliary
police and integrating them with the existing
regular forces.
3. Participation by law enforcement chief execu-
tives, the judiciary, and key members of their
staffs in all pertinent aspects of civil defense
operational planning, to assure readiness and
maximum capability for each of their depart-
ments to function in emergency as an integral
element of the government of which it is a part.
4. Establishment of operational relationships
among municipalities, counties, and States to
implement local, area, and statewide emergency
law enforcement operations, including inter-
state mutual-aid compacts.
5. Preparation of enabling legislation for use,
where necessary to statewide police authority,
to assure effective police mobile support emer-
gency operations.
6. Development of plans with Federal agencies for
intrastate and interstate operations which may
require Federal support or other assistance.
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Annex 16
V. Execution
A. State and Local Government
1. Each State will assign to its coordinator of police
and police services" the following responsibilities:
a. In coordination with, and with the assistance
of, State and local government law enforce-
ment officials, to survey the State and, in the
light of the assumptions stated above, deter-
mine the needs for law enforcement purposes
of the State and its political subdivisions
relative to organization, personnel strengths
(regular and auxiliary), training, equipment,
facilities (including communications), and
other resources.
b. In coordination with, and with the assistance
D.
Eisenhower
of, State and local government law enforce-
Dwight
ment officials, to review police plans and oper-
BUL
ations procedures, and, as shown to be desir-
able by the results of this review, to revise and
integrate these plans and operations proce-
dures with those of the other elements of the
State and local government emergency organ-
izations of which they are a part.
c. To develop and maintain a continuing inven-
tory of all police resources within the State and
to establish standing procedures to expedi-
tiously make such resources readily available
for use as needed.
5
Generally this is the chief law enforcement officer of the State or
his duly appointed representative. His title varies.
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Annex 16
d. To provide and coordinate police mobile sup-
port and to dispatch such support in specific
emergencies.
e. To develop, plan, and coordinate training
programs required for civil defense purposes
for regular and auxiliary police.
f. To maintain continuing liaison on a technical
staff level with OCDM Regional Offices to
assure receipt of all information and instruc-
tional materials of interest to law enforcement
agencies, and to serve as coordinator and con-
tact between and among OCDM and State and
local governments in promoting the general
police training programs for civil defense.
g. To transmit through authorized channels in-
formation, instructions, and materials from
Federal and State civil defense offices to all
police services of the State.
2. States will assist metropolitan area and local co-
ordinators of police to conduct police planning
and programing for their respective jurisdic-
tions or assigned areas, and to function with the
State coordinator in developing maximum police
capabilities for operations in national emergency.
3. Should State and local means prove inadequate
for maintenance of law and order in emergencies,
Federal assistance may be requested by the State
civil defense director through the OCDM Re-
gional Office, where possible, in accordance with
the provisions of Annex 7, Role of the Military.
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Annex 16
B. Federal Government
1. OCDM shall:
a. Determine adequacy of police facilities, equip-
ment, and other material resources for
civil defense purposes, and recommend such
changes and additions thereto as needed to
meet operational requirements.
b. Provide technical guidance and assistance to
States and local governments to aid them in
carrying out the basic national plans for police
services, including preparation and dissemi-
nation of training materials, texts, visual aids,
manuals, and guides.
C. Share with States and local governments the
costs of administering certain civil defense
activities and purchasing or otherwise acquir-
ing certain facilities, equipment, supplies,
à
materials, and contractural services needed by
Dwight
police for civil defense purposes.⁶
Jul
d. Issue information that apprises the people
about the programs and their objectives, cre-
ates understanding, and encourages support
for them.
e. Under emergency conditions, obtain Federal
assistance for State and local authorities as is
required and available.
2. OCDM Regions shall develop and maintain a
continuing inventory of critical police resources
within each Region and establish standing proce-
dures to expeditiously use these resources on an
interstate basis as required.
6 See Annex 38, Federal Assistance.
7
See Annex 9, Public Information.
[11]