INTRODUCTION TO CIVIL PREPAREDNESS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP88-01315R000400310025-0
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 29
• Document Creation Date: December 16, 2016
• Document Release Date: November 12, 2004
• Sequence Number: 25
• Publication Date: September 1, 1972
• Content Type: BOOK

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INTRODUCTION TO CIVIL PREPAREDNESS
-How Civil Preparedness Came To Be
-What Civil Preparedness Is Today
-Help Available And Where To Get It
and
-How The Outstanding Director Works
Department of Defense Defense Civil Preparedness Agency
CPG 1-1 Sept. 1972
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TENTS
FOREWORD . . . . . . . . . . . . . . . . . . . . . . . .
1. BACKGROUND
Origins of Civil Preparedness . . . . . . . . . . . . . 1
Civil Preparedness in Foreign Countries . . . . . . . . . . . 1
Civil Preparedness in the United States . . . . . . . . . . . 1
Planning Basis . . . . . . . . . . . . . . . . . . . . . 2
Hazards of Nuclear Attack . 2
What Would Happen in a Nuclear Attack . . . . . . . . . . . 2
What Fallout Is . . . . . . . . . . . . . . . . . 3
Fallout Would Be Widespread 3
Fallout May Cause Radiation Sickness and Death . . . . . . . . 4
Protection Is Possible . . . . . . . . . . . . . . . . . 4
Many Kinds of Fallout Shelters . . . . . . . . . . . . . . 5
II. BASIC PROGRAMS
The National Civil Preparedness System . . . . . . . . . . . . . 7
Civil Defense Preparedness . . . . . . . . . . . . . . . . 7
Natural Disaster Preparedness . . . . . . . . . . . . . . . 8
Organization of DCPA . . . . . . . . . . . . . . . . . 8
State Organization . . . . . . . . . . . . . . . . . . 8
Local Organization . . . . . . . . . . . . . . . . . . 8
Basic Elements . . . . . . . . . . . . . . . . . . . . . 9
Fallout Shelter 9
Community Shelter Planning . . . . . . . . . . . . . . . 10
Emergency Operations Planning . . . . . . . . . . . . . . 10
A Local Emergency Operations Plan . . . . . . . . . . . . . 10
An Emergency Operating Center . . . . . . . . . . . . . . 11
III. SPECIAL ASSISTANCE
Financial Assistance . . . . . . . . . . . . . . . . . . 13
Federal Surplus and Excess Property . . . . . . . . . . . . . . 13
Emergency Power/Water Supply Equipment . . . . . . . . . . . . 13
The Civil Preparedness Family . . . . . . . . . . . . . . . . 14
American Red Cross Advisory Services . . . . . . . . . . . . . . 14
Support Services . . . . . . . . . . . . . . 14
Support Materials (Publications, Films, Exhibits) . . . . . . . . . . 14
Other Federal Agencies . . . . . . . . . . . . . 15
Responses to Emergencies of Everyday Life . . . . . . . . . . . . 15
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FOREWORD
This booklet is designed to introduce the new local director to civil preparedness-which
includes civil defense and disaster preparedness. It was written with help from a special task
force of State and local Civil Defense directors.
We hope it will help you develop your emergency preparedness knowledge and increase
your ability to help your community cope with serious hazards and disasters, including
possible nuclear attack.
You will do well to take full advantage of the technical guidance, financial assistance,
and other aids described here. And you will find it useful to consult our Publications Catalog
(MP-20) for more information. Effective use of these resources, however, requires basic
knowledge of civil preparedness. Useful orientation may be obtained from the "Civil Defense
Director/Coordinator" course now available in home study form.
Your State Civil Defense director can advise you on how to enroll in this course and
how to obtain further education as you develop your career in civil preparedness.
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1. BACKGROUND
Origins of Civil Preparedness
Since the beginning of time, man has sought pro-
tection from the dangers of a hostile environ-
ment. The cave, the forest, even hollow logs pro-
vided refuge for many of our forebears. Where the
shelter and the actions taken were suitable to
meet the emergency conditions, man survived.
History contains countless references to individ-
ual, group, and community actions for protection
from famine, flood, fire, and the effects of war.
It was not, however, until the onset of World
War II, with the threat of large-scale aerial attacks
on cities and industrial centers, that civil defense
planning gained impetus. Added impetus resulted
from the advent of atomic and thermonuclear
weapons and advanced delivery systems.
Civil Preparedness in Foreign Countries
As one would expect, civil preparedness programs
in various nations of the world vary widely in
terms of emphasis, financial support, and public
interest and involvement. They range from the
extensive, heavily funded Soviet civil defense sys-
tem, including blast and fallout shelters, crisis
evacuation plans, and extensive public training
programs . . . to the dual-use, deep-rock shelters
of Norway and Sweden . . . the well-subsidized
shelter programs of traditionally neutral Switzer-
land . . . to the hurricane-centered emergency
programs of Barbados.
Joint civil defense planning and exchange of
information with friendly nations is conducted
actively by the Defense Civil Preparedness
Agency.
Information on the civil defense programs of
Canada, western European nations, Israel, Russia,
China, and several other countries, is available
from the Defense Civil Preparedness Agency, The
Pentagon, Washington, D.C. 20301.
Civil Preparedness in the United States
The origin of civil defense preparedness in the
United States may be traced to August 1916,
when Congress established the Council of Na-
tional Defense to coordinate "industries and re-
sources for the national security and welfare, and
to create relations which will render possible, in
time of need, the immediate concentration and
utilization of the resources of the Nation." The
Council consisted of the Secretaries of War,
Navy, Interior, Agriculture, Commerce, and Labor.
In December 1918, this Council was dissolved,
and from that time until 1940, civil defense in
a formal sense did not exist in the United States.
On May 28, 1940, President Roosevelt estab-
lished the National Defense Advisory Commis-
sion, which included the Division of State and
Local Cooperation. In May 1941, a Presidential
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Executive Order replaced the Division of State
and Local Cooperation with the Office of Civilian
Defense.
The period from May 1941 to January 1951 was
marked by a series of changes in the U.S. Gov-
ernment's civil defense policies, plans, and direc-
tion, as changes occurred in a potential enemy's
destructive capabilities and our national defense
policies.
On January 12, 1951, President Truman signed
into law the Federal Civil Defense Act of 1950
(Public Law 920), which authorized and estab-
lished a national civil defense program. As in the
preceding 10 years, there followed successive
changes in civil defense policies and plans, in
consonance with changes in the development of
weapons and delivery systems, and in our na-
tional defense policies and posture.
On August 1, 1961, by Executive Order of the
President, the Secretary of Defense was made
responsible for the Federal Civil Defense pro-
gram, and the Office of Civil Defense was estab-
lished as a part of the Defense Department. On
March 31, 1964, the Secretary of the Army was
assigned the civil defense responsibilities of the
Secretary of Defense, and the Office of Civil De-
fense was transferred from the Office of the
Secretary of Defense to the Office of the Secretary
of the Army.
On May 5, 1972, Secretary of Defense Melvin R.
Laird established the Defense Civil Preparedness
Agency (DCPA). Simultaneously the Office of Civil
Defense within the Department of the Army was
disestablished and its functions transferred to
the new Defense agency.
The new agency is responsible for developing an
effective national civil defense program and pre-
paredness assistance and guidance to help State
and local governments achieve total disaster
preparedness.
More information on the history and evolution of
civil preparedness in the United States is avail-
able from the Defense Civil Preparedness Agency,
The Pentagon, Washington, D.C. 20301.
Planning Basis
The DCPA works with the Office of Emergency
Preparedness (OEP), other federal agencies, and
States and localities throughout the United States
to achieve overall readiness to cope with major
emergencies. The central purpose of the program
is to develop a coordinated, effective response to
protect lives and property in the event of disaster.
All significant hazards are included in this readi-
ness concern, ranging from localized peacetime
emergencies to the national threat of nuclear
attack.
In the extreme kind of disaster--that caused by
nuclear attack-protecting people from the dan-
gerous effects of radioactive fallout is of major
importance. This should be reflected in your
emergency operations planning. And for this pur-
pose it is essential that you have basic facts about
the fallout hazard and protective measures which
can be taken against it.
Hazards of Nuclear Attack
When a nuclear bomb or missile explodes, the
main effects produced are intense light (flash),
heat, blast, and radiation.
How strong these effects are depends on the size
and type of the weapons, how far away the ex-
plosion occurs, weather conditions (sunny or
rainy, windy or still), the terrain (whether the
ground is flat or hilly), and height of the explo-
sion (high in the air, or near the ground).
What Would Happen in a Nuclear Attack
If the United States were attacked, people who
are close to nuclear explosions probably would
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be killed or injured seriously by the heat of the
nuclear fireball, or by the blast wave.
HEAVY
UCTION
MT
People a few miles away, in the "fringe area" of
an explosion, would be endangered by the blast
and heat, and by fires started by the explosion.
It is likely, however, that most of the people in
the fringe area would survive these hazards.
People outside the fringe area would not be af-
fected by the blast, heat, or fire. Department of
Defense studies show that in any nuclear attack
an enemy might launch against this country,
tens of millions of Americans would be outside
the fringe areas. To these people, radioactive
fallout would be the main danger. Protective
measures can be taken against this hazard.
What Fallout Is
When a nuclear weapon explodes on or near the
ground, great quantities of pulverized earth and
other debris are sucked up into the nuclear cloud.
Radioactive gases produced by the explosion con-
dense on and into this debris, producing radio-
active fallout particles. These particles fall back
to earth within a short time-the larger ones first,
the smaller ones later. The radioactive particles
give off invisible gamma rays-like X-rays-
which can injure and kill people. The most in-
tense radiation is given off quickly. Therefore,
the first few hours or days after an attack would
be the most dangerous period.
The particles of fallout would be about the size
of grains of salt or sand. The deadly rays they
would give off could not be seen, tasted, smelled,
or felt. Special instruments are required to de-
tect and measure the intensity of radiation from
fallout particles.
Fallout Would Be Widespread
The distribution of fallout after a nuclear attack
would depend on wind currents, weather condi-
tions, and other factors. There is no way of pre-
dicting in advance what areas of the country
would be affected, or how soon the particles
would fall back to earth at a particular location.
Some communities might get a heavy accumula-
tion of fallout, while others-even in the same
general area-might get little or none. No area
in the United States could be sure of not getting
fallout.
Areas close to a nuclear explosion might receive
fallout within 15 to 30 minutes; and it might
take 5 to 10 hours or more for the particles to
drift downwind to a community 100 to 200 miles
away.
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Generally, the first 24 hours after fallout began to
settle would be the most dangerous period to a
community's residents. The heavier particles fall-
ing during that time would be highly radioactive.
The lighter particles falling later would have lost
much of their radiation while still at high alti-
tudes.
Fallout May Cause Radiation Sickness
and Death
The invisible gamma rays given off by fallout
particles can cause radiation sickness--that is,
illness caused by physical and chemical changes
in the cells of the body. If a person receives a
large dose of radiation over a short period of
time, he will die. But if he receives only a small
or medium dose, his body will repair itself and
he will get well. The same dose received over a
short period of time is more damaging than if
received over a longer period. Usually, the effects
of a given dose of radiation are more severe in
the very young, the aged, and the ill.
Gamma radiation exposure is measured in units
called "roentgens" (abbreviated "r"). Few people
become ill who have been exposed to 100r or
less. Exposure of the whole body to more than
3OOr over a period of a few days will cause sick-
ness and may occasionally cause death. And
death would be likely for almost anyone who
receives a whole-body exposure of 600r over a
period of a few days.
Radiation levels from fallout build up during the
time the particles are being deposited. Radiation
then decreases with time; that is, the radiation
level, as measured in roentgens per hour (r/hr),
drops lower and lower. The decrease is rapid at
first, and much slower later on. This falling off
of intensity is due to "radioactive decay." There
is a sharp drop in radioactivity in the first 6 to 8
hours following a nuclear explosion, and then a
gradual leveling off to a relatively low decay
rate by the end of the first 48 hours.
Special clothing cannot protect people against
gamma radiation; and no special drugs or chemi-
cals can prevent large doses of radiation from
causing damage to the cells of the body. How-
ever, antibiotics and other medicines are help-
ful in treating infections which sometimes follow
excessive exposure to radiation (which weakens
the body's ability to fight infections).
Almost all of the radiation people would absorb
from fallout would come from particles outside
their bodies. Only simple precautions are neces-
sary to avoid swallowing the particles; and be-
cause of their size (like grains of sand) it would
be almost impossible to inhale them.
People exposed to fallout radiation do not be-
come radioactive and thereby dangerous to other
people. Radiation sickness is not contagious or
infectious, and one person cannot "catch it" from
another person.
Protection Is Possible
Protection from external radiation exposure is a
combination of three things: shielding, distance
and time, defined as-(1) shielding (shelter), (2)
distance (distance from radiation source), (3)
time (control of exposure).
In a fallout area, shielding is the most depend-
able means of protection. Shelter provides mass oft
between people and the source of radiation. By
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keeping the fallout particles outside, shelters
also provide some protection by distance. The de-
gree of intensity and the rate of decay to accept-
able levels must be determined by specialists
with special equipment.
People can protect themselves against fallout
radiation, and have a good chance of surviving it,
by staying inside a fallout shelter. In most cases,
the fallout radiation level outside the shelter
would decrease rapidly enough to permit people
to leave the shelter within a few days.
Even in communities receiving heavy accumula-
tions of fallout, people soon might be able to
leave shelter for a few minutes or a few hours at
a time to perform emergency tasks. In most
places, it is unlikely that full-time shelter occu-
pancy would be required for more than a week
or two.
Many Kinds of Fallout Shelters
The farther away a person is from fallout parti-
cles, the less radiation he will receive. Also, the
building materials (concrete, brick, lumber, etc.)
between a person and fallout particles absorb
many of the gamma rays.
A fallout shelter, therefore, does not need to be
a special type of building or an underground
bunker. It can be any space, provided the walls
and roof are thick or heavy enough to absorb
many of the rays given off by the fallout par-
ticles outside. This keeps dangerous amounts
of radiation from reaching people inside the
structure.
A fallout shelter can be the basement or inner
corridor of any large building, the basement of
a private home, a subway or tunnel, or even a
backyard trench with some kind of shielding ma-
terial (heavy lumber, earth, bricks, etc.) serving
as a roof.
In addition to protecting people from radiation,
most fallout shelters would provide limited pro-
tection against the blast and heat effects of nu-
clear explosions which occur some distance away.
More information on the effects of nuclear weap-
ons, protection from radioactive fallout, and ex-
amples of buildings built with fallout shelter in
them is available from your State civil defense
agency.
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I. BASIC PROGRAM
The National Civil Preparedness System
Despite continuing efforts to achieve and main-
tain peace, attack on this country is always a
possibility. Nuclear attack-the ultimate disas-
ter-could affect most of the Nation. In the face
of this threat, strong nationwide civil prepared-
ness is needed.
The Federal Civil Defense Act of 1950, as
amended, states the intent of Congress, "To
provide a system of civil defense, for the pro-
tection of life and property in the United States
from attack." The law also assigns responsibility
for civil defense. It states: "The responsibility
for civil defense shall be vested jointly in the
Federal Government and in the several States
and their political subdivisions. The Federal Gov-
ernment shall provide necessary direction, co-
ordination, and guidance, . . . and shall provide
necessary assistance."
The National Director of DCPA, in coordination
with Federal, State, and local governments, is
responsible for the development and execution of:
Civil Defense Preparedness
1. A shelter program, including evacuation
and movement to shelter;
2. A chemical, biological and radiological
warfare defense program;
3. Steps necessary to warn or alert Federal
military and civilian authorities, State of-
ficials and the civilian population of
enemy attack upon the United States.
Responsibility for developing, deploying
and operating military surveillance and
warning systems remains with the appro-
priate military department;
4. Civil defense communications, including
an appropriate warning network, com-
munications between authorities, and
communications procedures for the re-
porting on radiological monitoring and
instructions to shelters;
5. Emergency assistance to State and local
governments in a postattack period;
6. Protection and emergency operational
capability of State and local government
agencies in keeping with plans for the
continuity of government;
7. Programs for making financial contribu-
tions for civil defense purposes to the
States;
8. Plans and the operation of systems to
undertake a nationwide postattack assess-
ment of the nature and extent of the
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damage resulting from enemy attack and
the surviving resources, including systems
to monitor and report specific hazards re-
sulting from the detonation or use of
special weapons. Such assessment should
address civilian resources, whereas the
military departments retain primary re-
sponsibility for assessing damage to mili-
tary resources;
9. Necessary arrangements for the donation
of Federal surplus property in accordance
with section 203(j)(4) of the Federal
Property and Administrative Services Act
of 1949, as amended (40 U.S.G. 484(j)
(4)); and
10. The establishment and administration of
a Civil Defense Advisory Committee to ad-
vise the Secretary of Defense.
Natural Disaster Preparedness
1. A program to utilize and make available
the civil defense communications system
for the purpose of disaster warnings.
2. Programs to provide planning assistance
to State and local governments in their
development of natural disaster prepared-
ness plans and capabilities.
Of special interest to you as the local civil
defense director are the important roles of the
State agency: (1) in coordinating relevant Federal
and State programs with civil preparedness plan-
ning, and (2) in supporting and strengthening
local civil preparedness planning and operations
for peacetime and wartime disasters.
It is essential that you establish close working
relations with your State civil defense director
and staff.
Local Organization
Civil preparedness is by law a joint responsibility
of the Federal Government and State and local
governments. Each has a distinctive and comple-
mentary role. The local community, however, is
where the basic action is-where lives are saved
or lost when disasters strike. Experience in peace-
time disaster planning and operations forms a
solid base for readiness to meet the effects of
disaster caused by nuclear attack.
You, as the local civil defense director, assisted
by the State civil defense agency, have major
roles to play in helping your local community
and its residents achieve preparedness for the
major emergencies which may occur at any time
of day or night.
Organization of DCPA
DCPA, although located in the Department of De-
fense, is civilian in character and direction. Its
headquarters is in the Pentagon. In addition,
there are eight DCPA Regional offices located
at Maynard, Massachusetts; Olney, Maryland;
Thomasville, Georgia; Battle Creek, Michigan;
Denton, Texas; Denver, Colorado; Santa Rosa,
California; and Bothell, Washington. There is also
a DCPA Staff College at Battle Creek, Michigan.
DCPA works with the 50 States, Puerto Rico, the
Canal Zone, the Virgin Islands, Guam, American
Samoa, and the District of Columbia. And through
the States we reach the counties, parishes and
local governments to help them prepare to cope
with effects of man-made or natural disasters.
State Organization
State civil defense agencies have a number of
critical civil preparedness functions to perform.
You have a key role in creating interest, motiva-
tion, and community involvement in planning to
cope with major emergencies. A primary duty
is to serve your chief executive by coordinating
the emergency preparedness planning activities
of the local departments of your government.
Your success will be judged by the extent to
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which your actions serve to strengthen the com-
munity, enrich its daily life, and improve the com-
munity's ability to cope with the effects of various
kinds of hazards. These include such major
emergencies as floods, drought, hurricanes, torna-
does, blizzards, chemical accidents, air and water
pollution, transportation accidents, civil disorder,
earthquakes, radiological hazards, fires, and
enemy attack.
As director/ coordinator for the chief executive,
you have major duties to:
Work closely on a cooperative basis, with all
the heads of local departments of your
government and community organizations
in developing plans and procedures to cope
with disasters.
00 Specify and describe the major peacetime
hazards which are likely to face your
community.
41 Describe the radioactive fallout hazard of
nuclear attack.
Analyze the effects of the hazards or disas-
ters on the area.
Describe the needs, both human and mate-
rial, which can be caused by the disasters.
Inventory the manpower and material re-
sources, from both governmental and pri-
vate sources, that would be available to
meet these needs.
Identify deficiencies in resources and help
the concerned local officials plan to remedy
them.
Keep your chief executive fully informed of
your major activities, your successes, prob-
lems, and what you need to do your job.
In an actual major emergency, the chief execu-
tive is in overall command and is responsible for
policy-level decisions. The Chief of Police, or
Sheriff,.'ire Chief, and other heads of operating
departments, are in command of their forces. If
you have done your job well, there will be a mini-
mum of confusion and waste effort, and the re-
sources of the community will be applied to the
emergency in a controlled and efficient manner.
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The form that civil preparedness planning takes
in local jurisdictions varies from one area to an-
other, according to the size of the place involved,
the hazards being planned for, and other factors.
This is recognized at State and Federal levels;
and, therefore, rigid uniformity in emergency
planning efforts is neither expected nor desired.
There are, however, certain basic elements which
must be included in emergency operations plan-
ning if a city, town, or country is to be ready to
save lives and property in the event of a peace-
time or nuclear disaster.
Basic Elements
Shelter from fallout for all persons wherever they
may be at any hour of the day or night-at work,
at school, at home-is a key element. Of equal
importance are a local emergency operations
plan-and an Emergency Operating Center, which
is a centralized point for emergency communica-
tions and coordination in a major emergency.
Fallout Shelter
Much fallout shelter space-in buildings and in
mines, caves, and tunnels throughout the coun-
try-has been identified as suitable for public
use in an emergency. Additional shelter space is
identified in new and remodeled buildings on a
continuing basis.
Many of the public fallout shelters identified to
date are located in the downtown areas of large
cities and are therefore not easily accessible to
many people at night. There is some shelter in
the suburbs, and a considerable amount in the
basements of private homes in certain parts of
the country. But in most areas there is not
enough shelter for all persons wherever they may
be at any time of the day or night.
To increase the amount of shelter space avail-
able, DCPA administers a nationwide shelter de-
velopment program. Its aim is to encourage and
aid architects and consulting engineers to include
fallout shelter in the design of new buildings and
thus increase the national shelter inventory,
DCPA, with the assistance of universities, insti-
tutes, and professional societies, has qualified
many architects and engineers in the technology
of fallout shelter design and analysis. These archi-
tects and engineers, through the use of appropri-
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ate design techniques, are able to realize addi-
tional fallout protection in new buildings at little
or no extra cost.
More information and assistance on the CSP pro-
gram may be obtained from your State civil de-
fense agency.
[)CPA offers free advisory services on shelter de-
sign and related guidance to architectural and
engineering firms and to building owners from
Advisory Service Centers located in various States.
More information on this subject and names and
addresses of these Advisory Service Centers may
be obtained from your State civil defense agency.
Community Shelter Planning
Careful advance planning is required to insure
effective use of fallout shelters in time of nuclear
attack. To help local governments do this, DCPA
maintains the Community Shelter Planning (CSP)
program.
An important end result of CSP is a set of instruc-
tions telling people "where to go and what to do"
ii event of nuclear disaster. Many localities also
include basic instructions on how to cope with
natural disasters common to the area.
The CSP process provides the local civil defense
director much valuable information on the emer-
gency resources and requirements of his com-
munity for coping with disasters and community
problems in general. Such data includes types of
building construction, housing densities, traffic
flow, transportation facilities, public fallout shel-
ters and their availability to residents, locations
of radiological monitoring stations, fire and police
capabilities, and other significant information
needed for full emergency preparedness. This
information helps the local civil defense director
develop the ability of his community to cope with
peacetime disasters and hazards, as well as with
nuclear disaster.
Emergency Operations Planning
The following national systems, with counterparts
in States and many local communities, help as-
sure effective use of shelter and other emergency
services in disasters: (1) A warning system to
alert people of impending disaster, (2) emer-
gency communications systems to transmit vital
information and enable officials to direct emer-
gency operations, (3) a radiological monitoring
and reporting system to collect, evaluate, and dis-
seminate information on radioactive fallout re-
sulting from nuclear explosions, and (4) a dam-
age assessment system to determine what has
happened, what damage was done, and what
resources remain.
Other services essential to effective emergency
operations include emergency public information,
police, fire, rescue, transportation, public works
engineering, public utilities, medical care, and
emergency welfare.
A Local Emergency Operations Plan
A local emergency operations plan is the design
for saving lives, alleviating suffering, protecting
property, and helping to speed recovery in the
event of disaster. The why, what, when, where,
and who of local government's operations in dis-
asters is spelled out in the local plan. It will in-
clude the disaster effects being planned for-how
the emergency demands will be met-with what
manpower and material resources-and the other
factors which result from the hazard analysis of
the civil defense director.
The plan may be short or long. For your chief
executive and his alternate, a one-page emer-
gency plan with key data would probably suffice.
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Data would include the names of the vital emer-
gency services by department responsible for
each of them; names, telephone numbers, and
addresses of department heads and their alter-
nates who would be in charge of the service in
time of major emergency. Emergency operations
plans for the local department heads would of
necessity be longer and more detailed as re-
sponsibilities are fanned out from the chief
executive.
Local plans should cover the preparations and
actions required for both peacetime and wartime
disasters. Communities today cannot afford
emergency operations plans which deal only with
the effects of nuclear attack. Realistic plans in-
clude the protective facilities and measures re-
quired for the major hazards of everyday life
as well.
When disaster strikes, the reality of protection
is tested most severely at the local level. Prepara-
tions by local government must be sound, and
must work when needed. The emergency plan
must be kept up-to-date and be ready to go. A
good plan provides for periodic updating, and
for tests and exercises.
Meeting people's needs in today's emergencies
and disasters tests the local plan, and provides
training and preparation for the ultimate disas-
ter-nuclear attack.
An Emergency Operating Center (EOC)
Emergency operations in time of major emergen-
cies can best be controlled and directed from a
control center-an Emergency Operating Center
(EOC). This is a central "command post" from
which the chief executive and local department
heads can exercise the necessary direction of
the emergency operations and actions needed
to protect and aid citizens and minimize the
effects of the disaster.
Communications facilities backed up by emer-
gency power facilities are essential to effective
operation of an EOC.
In many communities, use of an EOC provides
day-to-day experience in responding to emergen-
cies and controlling resources. This is especially
true where the EOC is located in a public safety
agency, such as a police or fire department
building.
Face-to-face guidance from experts, printed
guides and films, advice on emergency-opera-
tions simulation exercises, help in local emer-
gency operations planning-in setting up an
EOC and in testing emergency operations plans-
are available from your State civil defense agency.
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II. SPECIAL ASSISTANCE
Financial Assistance
In addition to technical advice, guidance, and
other aids, DCPA provides financial assistance up
to one-half the cost of:
State and local civil defense personnel and
administrative expenses.
Travel and subsistence incurred in attend-
ance at approved DCPA Staff College train-
ing courses in Battle Creek, Michigan.
Civil defense supplies, equipment, and fa-
cilities-in what is usually called the "hard-
ware" program. In this program, Federal
financial assistance is provided for the de-
sign, construction, and equipping of Emer-
gency Operating Centers, and for communi-
cations and warning equipment, supplies,
and maintenance.
Federal Surplus and Excess Property
DCPA helps State and local civil defense agen-
cies obtain Federal surplus and excess property.
Federal surplus personal property that can be
donated to State and local civil defense orga-
ambulances, generators, rescue equipment, fire-
fighting vehicles, and helicopters.
Emergency Power/Water Supply
Equipment
In addition, DCPA maintains emergency power
and water supply equipment units, each consist-
ing of 10 miles of 8-inch water pipe, pumps,
electric generators, purifiers, chlorinators, and
storage tanks. This equipment, located in ware-
houses throughout the country, is loaned to State
and local governments for a variety of disaster
uses, such as emergency power and lighting fail-
ures and water pumping in flood, drought or
other conditions.
nizations ranges from firefighting and rescue
equipment, and generators, to hand tools, and
pI JJ ILy, avallaLJIV vn a iuiI -LeIIIJ IVall oasis, are iI\\ II i
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Your State civil defense agency can tell you how
to obtain the kinds of Federal assistance de-
scribed above.
The Civil Preparedness Family
Civil preparedness is a cooperative partnership of
governmental (public) and nongovernmental (pri-
vate) skills and resources of all kinds. This joint
effort is essential because the civil preparedness
missions at all levels-national, State, and lo-
cal-are much too big to be accomplished by
government alone. The help of private-sector per-
sonnel, trained or experienced in disaster opera-
tions, is vital to the development of protective
measures for our communities.
Support Services
Building and maintaining effective civil prepared-
ness programs requires the active support of a
number of vital services. They include support
provided by the military services, and DCPA pro-
grams of training and education, daily information
services, emergency information, industrial, labor
and voluntary participation services, and research
and development. DCPA provides advisory serv-
ices on computer techniques, sorting and filing
correspondence and records, and related adminis-
trative and fiscal matters.
Your State civil defense agency can assist you in
getting the help you need from these programs.
Getting private individuals and agencies involved
and participating in community emergency pre-
paredness and operations is an important task
for the local civil defense director. It isn't always
an easy task, but it canbe done, and the rewards
are great. In fact, no community civil preparedness
system is complete or fully effective until it in-
volves the essential human and material re-
sources of both the local government and the
private sector. The private sector includes busi-
ness, industry and labor, and social, civic, health
and welfare groups of all kinds.
Your State civil defense agency can give you ad-
vice and examples of how to involve these kinds
of community resources in your emergency plans
and operations.
American Red Cross Advisory Services
A special source of expertise on the involvement
of community resources in emergency-type plan-
ning is the American Red Cross. Expert help in
identifying and working with community leaders
in community action for disaster preparedness is
available from the eight American Red Cross ad-
visors assigned to DCPA. An advisor is available
at each DCPA regional office to help when and
where needed. Help from him should be re-
quested through your State civil defense agency.
In addition to giving personal help, the advisor
can put you in touch with Red Cross representa-
tives, and leaders of other community groups,
who have practical experience in disaster plan-
ning and operations. This would include agencies
such as the Salvation Army, church groups, and
civic, service and patriotic groups.
Support Materials
(Publications, Films, Exhibits)
DCPA issues:
is Guidance on emergency planning and opera-
tions for use by States and localities. This
includes (CPG1-2) "Disaster Operations," a
guide for officials of local government on
emergency planning and operations.
Regulations and guidance on Federal finan-
cial assistance for State and local civil de-
fense agencies.
Training manuals and publications.
Technical publications for architects, engi-
neers, and educators.
Specialized publications for business, in-
dustry, and labor.
Civil preparedness program materials, for
use by the leadership of private voluntary
organizations and community leaders.
Publications for the general public: (MP-54,
"Civil Defense," briefly describes the na-
tional civil preparedness program and con-
tains guidelines on personal preparedness).
Emergency public information materials-
(a public handbook, (H-14) a motion picture,
as well as newspaper, radio, and television
kits-all entitled IN TIME OF EMERGENCY).
Special-purpose publications, such as the
DCPA Annual Report, statistical report, mo-
tion picture catalog, and catalog of exhibits.
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 Approved
These publications and others issued by DCPA are
listed in the Publications Catalog, (MP-20).
DCPA produces films and exhibits on civil pre-
paredness subjects for use by State and local civil
defense directors and others. Selected films and
exhibits are displayed in museums, at major
events such as national conventions, and at State,
regional, and local fairs.
A list of current DCPA films, a synopsis of each,
and the conditions under which they may be
borrowed or purchased are described in our
Motion Picture Catalog (MP-6). Exhibits are de-
scribed in the Display Catalog (MP-9). These
catalogs are available to all State and local civil
defense directors.
Other Federal Agencies
Programs of some 30 other Federal agencies with
national emergency preparedness assignments
afford opportunities, in many cases, for mutually
helpful joint planning and financial assistance in
the development of protective measures and fa-
cilities for communities.
Your State civil defense agency can tell you about
relevant programs conducted by certain of these
Federal agencies and suggest how you might get
help from them for your community.
Another excellent source of information on Fed-
eral assistance available is the "Catalog of Fed-
eral Domestic Assistance." This 800-page manual,
published by the Executive Office of the Presi-
dent, describes more than 1,000 Federal pro-
grams in terms of specific assistance provided,
the purpose for which the assistance is intended,
who can apply for it, and how to apply. It also lists
the addresses of Federal field offices to contact
for additional information.
The catalog can be purchased from the Super-
intendent of documents, U.S. Government Print-
ing Office, Washington, D.C. 20402.
Responses to Emergencies
of Everyday Life
Advisory services, technical and financial as-
sistance, publications, films, and other available
aids and services have been described in this
booklet.
The usefulness of these varied resources is tested
in the emergencies of the everyday world. When
ingenuity, common sense, and hard work are
applied to these resources, the results can be
dramatic, highly useful, and instructive. DCPA has
collected examples of the successful coupling of
resources and resourcefulness in emergency
planning and operations. These practical ex-
amples are taken from the daily experiences of
civil defense directors across the country. They
are provided by directors for RESPONSE, a
news exchange published periodically by DCPA.
A collection of typical case examples published
to date can be obtained by writing to RESPONSE,
Defense Civil Preparedeness Agency, The Penta-
gon, Washington, D.C. 20301.
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IV. THE OUTSTANDING LOCAL CIVIL
DEFENSE DIRECTOR
Poor reactions to the major emergencies of daily life in the community can be as
bad or worse than no actions at all. Effective emergency responses do not just hap-
pen. They are planned. They result from careful advance preparation and
the involvement of all key segments of the community.
Successful local civil defense directors tell us there are three basic things that you,
the local director, should look at in your emergency planning. They are:
1. Your requirements.
2. Your resources.
3. Yourself.
To help you do this, and to serve as reminders along the way, we have prepared
some simple checklists. We hope they will help you become the outstanding man
or woman in your community.
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THE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
BELIEVES:
That whatever makes the community a cleaner, safer,
better place in which to live also makes it better pre-
pared to cope with large-scale emergencies and
disasters which may occur at any time.
Checklist
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THE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
KNOWS: Checklist
The hazards and major emergencies which are likely
to occur in the everyday life of his community, and
their effects on people and resources.
IDENTIFIES:
The effects of each type of major hazard to life and
property, and coordinates the development of plans
and facilities needed to cope with them in the event
of an unforseen emergency.
THE OUTSTANDING DIRECTOR
KNOWS:
That he doesn't know all the answers.
BUT HE DOES KNOW:
Where to go to get the help he needs.
THE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
KNOWS:
How civil preparedness is organized in his area.
? The local emergency ordinances or authority.
? Relations with neighboring places, mutual obliga-
tions, resources.
? Related programs and resources of other govern-
ment agencies, Federal, State and local.
? Related programs and resources of non-govern-
mental (private) agencies.
? Military support plans and programs.
The State civil defense agency set-up and programs.
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Checklist
? Key staff of the State civil defense agency.
The national civil preparedness program, purpose and
functions.
OUTSTANDING LOCAL CIVIL DEFENSE
)(I'TQp
KNOWS HIS COMMUNITY'S:
Population (number and characteristics)
Economic base:
? Agriculture
? Industry
? Recreation
? Retired persons
? Government services
? Military
? Other
Unmet needs (economic, social, environmental)
Resources to meet these needs
Plans for community development
Budget priorities
State and federally funded projects
t TSTANDING LOCAL CIVIL DEFENSE
CTOR
KNOWS:
The problems and priorities of his local government
officials:
*The mayor, city manager, county commissioners,
selectmen, city council members.
? Heads of local departments of government-fire,
police, engineering, health, welfare, planning,
finance.
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Checklist
?Chairmen and members of special boards and com-
mittees on schools, sanitation, sewage, fire, safety,
environment, ecology.
THE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
DOES NOT:
Become an added problem by demanding help.
Instead, he asks "How can I help you with your prob-
lems, Mr. Mayor, Mr. Selectman, Mr. Department
Head, Mr. Chairman or Member of a Board or
Committee?"
He then finds WAYS TO HELP
and thus
Becomes a most valuable resource to his local govern-
ment.
THE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
KNOWS:
How to get the money and equipment he needs:
By preparing and selling an adequate budget.
By going to his State civil defense agency for help.
By making use of resources such as:
? Speech materials
? Technical advice and guidance
*Training and education
KNOWS HOW TO OBTAIN:
? Federal matching funds for:
Salaries and administration
Facilities, equipment, supplies
Training.
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Checklist
? Help on Community Shelter Planning
? Federal surplus property
? Federal excess property
? Publications, exhibits, films
AND MAKES SURE:
That wherever possible every dollar and everything in
his program is made to do double-duty; that is, to serve
useful day-to-day purposes in the community as well as
emergency functions.
f.HE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
KNOWS:
That success depends on public support and involve.
ment. Therefore, he works closely with the reporters,
editors and publishers of local newspapers, and with
the program directors and officials of radio and tele-
vision stations. He:
? Visits or call them regularly.
? Prepares and gives them news releases on specific
civil preparedness activities.
? Understands that what may be routine, "old hat,"
information to civil defense people is often fresh
news to the public.
? Suggests and prepares radio and TV appearances
for key government officials and himself.
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Checklist
? Gets other people to help him to tell the civil pre-
paredness story.
THE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
KNOWS:
The influential people of the private sector (the people
who make things move) in his community.
?The leading citizens-their needs and interests.
? Leaders of business, industry, agriculture, labor,
religion, science, education, and other professions.
?The leading local clubs, professional, civic, and
other groups-their needs and interests.
? Newly emerging groups-their needs and interests.
TELLS HIMSELF:
"I need the help of these local leaders to make things
move for civil preparedness."
And he asks:
?"How can I get their attention and their help?"
? "What interests do we have in common?"
? "How can I help them get what they need?"
- and -
FINDS:
Ways to help them, and thereby helps his community
and himself.
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THE OUTSTANDING LOCAL CIVIL DEFENSE
DIRECTOR
IS FAMILIAR WITH Checklist
The Disaster Relief Act of 1970 (Public Law 91-606)
and his State's Disaster Assistance Plan and knows
what they mean to his community in time of major
disaster, and
KNOWS:
? How to help his community prevent or lessen the
effects of major disasters, such as floods, blizzards,
drought.
? That efficient operation of his community's advance
warning system is vital to save lives and lessen
damage.
? How to survey and report disaster casualties and
damage that may occur to public and private prop-
erty.
HELPS:
? Local departments and private agencies plan and
prepare to provide emergency, health, medical, wel-
fare, and other relief services to people in disasters.
? Ensure readiness for disaster operations by regular
testing of his emergency operations plan, the
advance warning-communications system, readiness
of the EOC, and other emergency facilities.
?Ensure that resources from outside the community
will be available by reviewing mutual aid agree-
ments with neighboring towns and with officials of
the State civil defense agency.
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IN A MAJOR DISASTER HE: Checklist
? Proceeds at once with emergency work as directed
by his chief executive and the local emergency
operations (disaster) plan.
? Helps his chief executive and the media provide
accurate emergency information to the public on
the disaster events.
? Knows who has been designated as State coordinat-
ing officer and contacts him as soon as possible.
? Helps his local officials assess the community's
emergency needs and report them to the State
coordinating officer.
? Helps his chief executive prepare and issue emer-
gency proclamations, orders, regulations.
? Relies at first upon the local community resources
to meet immediate emergency needs.
? Keeps careful records of expenditures and proof of
payment to support later claims for reimbursement
for eligible work.
? Knows that advice and instructions from State and
Federal officials are available on procedures for
requesting Federal disaster assistance.
ASKS:
Am I:
? A Good Listener
Eager to understand.
? Sympathetic
Able to put self in other person's shoes.
? A Clear Communicator
Able to find areas of mutual interest.
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Checklist
? Flexible
Able to adjust to changes, including emergencies.
? Realistic
Able to analyze situation objectively.
? Knowledgeable
Doing the necessary homework.
? Cooperative
Eager to help the other person solve his problems.
? Imaginative
With a spirit of exploration.
? Generous
Willing to share my success with others.
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TO: The Local Civil Defense Director
FROM: The U.S. Director of Civil Preparedness
SUBJECT: Your Job
Whatever title you hold, I see you as a Coordinator for Lifesaving-strongly
supported by your Chief Executive. I see you as a person skilled in pulling together
a variety of resources in your government and community to protect people in
man-made and natural disasters of all types-a person dedicated to educating people
in the principles of civil preparedness-a person who knows where to find and how
to use all possible sources of help in building a stronger, safer community.
"Civil preparedness is as old as Noah and his
Ark ... and as young ... as helping protect
people ... from the latest environmental threat."
John E. Davis
U.S. Director of Civil Preparedness
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DCPA Regions and Staff College
State and Local Civil Defense Directors
Defense Coordinators of Federal Agencies
State CD Adult Education Coordinators
Instructors Qualified in Fallout
Shelter Analysis
CE-NAVFAC Field Offices
Military Support Planning Offices-State AG's
CONUS Army Military Support Planning Officers
USASTRATCOM-CONUS CD Warning
Contract Universities-Civil Defense University
Extension Program
Executive Reservists
NATO CD Directors
US-American Library Assn.
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