Civil defense plan [June 1, 1951]

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State of Georgia DEPARTMENT OF DEFENSE CIVIL DEFENSE DIVISION Office of the State Director 410 State Office Building
ATLANTA 3, GA.
1 June 1951.

Honorable Herman E. Talmadge Gove:nor of Georgia State Capitol Atlanta, Georgia
Dear Governor Talmadge:
Submitted herewith is the Georgia State Plan for Civil Defense.
This plan, while advisory in character, is intended as a basis for plan'1ing throughout the state. The plan is deliberately simple and general. It is subject to change as needed, but it can be presumed that the basic concepts of the plan will be preserved. The basic plan will be supplemented by circulars, letters and bulletins, more detailed in nature which may be revised periodically without changing the basic plan.
Adherence by political subdivisions to the basic organizational structure and procedures established will provide the uniformity and standardization essential to the effective implementation of this plan.
In recognition of the primary mission of Civil Defense, the preservation of the productive capacity of the nation, it is essential that the entire resources of the State be made available for use where needed. It is not practical to confine our thinking and. pla.nning to the field of atomic warfare. Organizational flexibility, therefore, becomes necessary. We think we have provided that flexibility in this plan.
I cannot stress too strongly the responsibility of local officials in organizing Civil Defense Forces. The success of the plan will be largely dependent upon the energy and cooperation with vihich it is implemented at all levels, down to and including individuals.

Sincerel:.;/ /

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l~~NEST VANDIVER, JR{,

Director.

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EXECUTIVE DEPARTMENT ATLANTA

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To Cj_tizens of Georgia:
'Lo :Jis+.Ol'~.c A:r.oricun way of life, with its emphasis on peace and productivity and its repugnance- for \Var and destruction, is threatened by forces \Vhose objective is thG destruction of free institutions and the enslavement of man throughout the \Vorld. Willingly or unwillingly, the people of the United States find themselves thrust in+,o the forefront Ocf the defense against this malignant encroachment upon tho rights ~f free men and free nations. If \Ve are to deserve our O\Vn heritage of freedom, if indeed \Ve are to be the bulwark of freedom throughout the \Vorld, then it follo\Vs that we must be strong, for only in strength does there lie any deterrent to the brute force with which \Ve are faced.
As \Ve must be strong militarily, {30 that we may not fall easy victim to our powerful adversary, so we must gird ourselves for the protection of our homes, our people and our productive resources. This we shall do through our civil defense organization in Georgia and throughout the nation. Knowing that, individually, we are weak, we must seek through mutual helpfulness that combined strength 1...rhich will enable us to perform the task which may well confront us.
In the following pages devoted to civil defense in Georgia, will be found the frame work about which we can develop that organized readiness to meet disaster whatever may be the form which it takes. As Governor of Georgia, and th~ official responsible under la\V for the organization of its civil defense, I call upon all loyal citizens to tender whatever contribution they are best qualified to make, regardless of tho personal sacrifice that may be required to ensure our continued existoncc as a free people in a free nation.
Nay a wise and just Providence spare us the suffering and death
which war will bring. May we also be granted the courage and
fortitude to pursue unafraid, the course of dignity and freedom.

TABLE OF CONTENTS
PREFACE
GLOSSARY
STATE CIVIL DEFENSE PLAN
SECTION I - Purpose SECTION II - Assumptions SECTION III - Bnsic Policies SECTION IV - Responsibilities SECTION V - Organization SECTION VI - Logistics SECTION VII - Planning Phases SECTION VIII- Operations
ANNEX I - STATE ORG~NI&\TION
SECTION I - Governor SECTION II - Office of Civil Defense SECTION III - State Departments
CHART I - State Organization
ANNEX II - CRITICAL TARGET AREAS
SECTION I - General SECTION II - Mutual Aid SECTION III - Mobile Support
ANNEX III - CO!--lMUNITY ORGANIZATION
SECTION I - General SECTION II - Mutual Aid SECTION III .. Mobile Support SECTION IV - Evacvation
ANNEX IV - RED CROSS
SECTION I - Responsibilities

PREFACE

The necessity for a prepared, well-organized Civil Defense in the National Security is evident. The war potential of the United States must be secure from any possibility of disintegration. The Federal Ci~il Defense Agency will deal directly with the States in all matters pertaining to Civil Defense. The responsibility of the State Government is to provide leadership and supervision in all planning for Civil Defense and direction of supporting operations in an emergency. It is recognized that no community in itself is sufficiently strong in resources to cope with disaster of major proportion. There fore, it is planned to utilize the resources of other communities to assist the stricken area. Such assistance requires an adequate State plan. In order to be practical, such a plan must be simple, flexible, completely comprehensive, based on sound principle and be kept up to date as planning factors change. Plans that are overly complex, too rigid, based upon fallacious concepts or allowed to become out of date are worthless. In order to achieve the necessary flexibility and simplicity, Civil Defense planning for the State of Georgia will be published in several forms:

1.

The general plan, which will outline planning factors

and assign areas of responsibility. This plan will contain three

annexa:

a. Annex I - State Organization b. Annex II - Critical Target Area Organization c. Annex III- Community Organization

2. Detailed information concerning various phases of the plan will be published periodically, as necessary, in five different forms:

a. General Orders, which deal with operational directions and plans, basic changes in organization involving structure, etc.
b. Bulletins, which deal with organizational policy and similar matters, such as insignia, etc.
c. Informational Letters, which are issued to clarify a situation and provide information explanatory in character.
d. Training Bulletins, which are divided into various training subjects, su:!h as fire, police, communications. Bach service shall be assigned consecutive training bulletin numbers, such as Police Training Bulletin No. 1.
e. Memoranda, which covers miscellaneous material.

In this manner data can be revised and brought up to date as noedod without revising the complete plan.

GLOSSARY
In order to prevent any misunderstanding of unfamiliar terms, the following are defined and discussed at the outset:
Civil Defense is defined as the protection of the home front in
tiiileOf war by civilians acting under civilian control in order
to minimize war damage and oasualities, to maintain war production, to preserve the maximum civilian support of the war effort, and to restore stricken communities to normal activity as soon as
possible. Civil Defense in tuture warfare will therefore be direct-
ed toward tho maintenance ot our war production at our maximum possible capacity as well as the protection of the lives and health of our citizens. Civil Defense rests upon the principle of selfprotection by the individual extended to include mutual self-protection on the part of groups and cammunities.
Critical Targot~!reas are areas designated by the Federal Government as more likely to be attacked than others, not as a firm prediction but as a sound basis for nation-wide Civil Defense planning. These eritical target areas will be industrial-metropolitan areas which support concentrations of industry and populations essential to the war effort,
Mutual Aid is the voluntary exchange of assistance among communities rn-an~ediately adjacent to critical target areas during an emergency based upon pre-arranged, practical plans and authorized by formal legal agreements. M11tual aid zones shollld be established around all critical target areas.
~Qbile S~EE~ is the uso of protective services or parts and combinations of such services together with such other volunteer services as are necessary, organized as teams which, upon comnmnd of higher authority, are dispatched to neighboring or distant areas of operations, The assistance furnished under terms of mobile support is under the direction of State authority. The personnel and equipment of mobile support teams are drawn from the various cities, towns, and co~nunities according to their ability to contribute.
Ig~r-State Pacts are formal, legal agreements entered between States covering all matters of inter-State Cooperation, including mutual aid, out of State mobile support, mutual recognition of out of State Professional licenses, settlement of expenses and compensation for out of State Civil Defense forces,
t:1::!tual fl!. Peets are formal, legal agreements established jointly
by communities on their own in:itiative. Such pacts will in the main be negotiated by communities within n critical target urea and should be coordinated with the State Director of Civil Defense.

yacuation and DisEersion are defined as the removal of population groups from an area or community either before or after an attack. Evacuation refers to a displacement of population of a permanent or semi-permanent nature. Dispersion, on the other hand, refers to the removal of groups temporarily and only for a limited distance with the understanding that dispersed individuals intend to return to their places of abode as soon as possiole,
Evacuation may be selective and contemplate the removal of segments of the population such as the aged, infirm, children, etc. Both evacuation and dispersion may be either voluntary or compulsory. Any evacuation and dispersion will be carried out under State-wide plans which will avoid serious compromise of war production.

CIVIL DEFENSE PLAN FOR THE STATE OF GEORGIA
SECTION I. PURPOSE
1. To provide for the mobilization, organization and direction of the civilian populace to prevent or minimize the effects of enemy or subversive action and to maintain or restore those facilities essential to civilian life and to preserve the maximum civilian support of the war effort.
2. To delineate responsibility and establish mutual understanding of the authority, responsibility, functions and opere.tions of the various agencies or organizations necessary to provide for civil defense needs.
3. To establish long range policies on a state-wide basis providing for the integration of all levels of civil defense into a coordinated state-wide effort.
4. To provide a plo.n for combatting the effects of natural
disasters.
SECTION II. ASSUMPTIONS
1. Tlli~t an attack or a series of attacks on the metropolitan areas of this State is now physically possible and strategically probable.
2. Thnt such attack or attacks may be delivered either through. hostile air action, subversive activities, including sabotage, or a combination of both and may employ conventional, atomic, biological or chemical weapons.
3. That such attack or atta~ks will come at a time and place propitious to the aggressor, beyond our control. There is little likelihood that any substantial advance warning will be received.
4. That atomic vmapons will be employed agcinst only the most
strategic installations, facilities and densely populated areas.
a. That mass evacuation of metropolitan areas prior to attack is not feasible
5. That biological weapons will be employed against rural
areas.
6, That the President of the United States will not declare
martic,l law.
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7. That contiguous states will render material support and assistance as practicable.
8~ That through the medium of mutual aid pacts the free flow of p8rsonn0l, equipment supplies and services will be effected in time of emGrgency.
9. That natural disasters will occur without warning.
10. That this Nation, this State and the political sub-divisions thercnf can never reach a state of complete and perfect prepc:tredne&e; that every effort will, however, be made to perfect the Civil Defense organization to the maximum possible degree.
SECTION III. BASIC POLICIES
1. The task of Civil Defense must be shared by State and local Governments and individu.&l citizens.
2. The basic tenets of Civil Defense are self-help and mutual aid.
3~ Political sub-divisions will render tho maximnm practicaele collective effort and assistance to war-stricken communities through mutual aid.
4. Insofar as possible the individual will be given the
maximum Civil Defonse training practicable to perform a given flmction and responsibility.
5. In conformance with the principle of self-help, Civil
Defense action will start with the individual and extend in turn to the community, State, and Federal Governments.
6. Communities will eXhaust local resources before calling upon the State for assistance.
7. The resources of the entire State must be organized on a state-wide basis capable of being utilized anywherG within or without the State.
8. The State will not supersede local authorities unless:
a. The disaster exceeds the capability of the political subdivision.
b. Request is made by properly constituted authority, substantiated by evidence indicating the need.
c. Local programs are not in consonance with statewide requirements.
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SECTION IV. RESPONSIBILITIES
1. Governmental responsibility in time of disaster remains the same as in normal times; that is to say, the protection of life and the preservation of property, alleviation of suffering, and the prompt mainten~nce and repair of public property end restoration of normal operations. Disasters do not alter in any defSree the legal responsibilities of the government, but on the contrary tend to increase tho need for meeting such responsibilities promptly and adequately under emergency conditions and with a minimum of oonf'usion. Only by careful and realistic planning and widest possible dissemination of information can those objectives be attained.
2. Federal Government
a. The Federal Civil Defense Agency is responsible for the national Civil Defense Planning and development of a program adequate to the needs of the nation.
b. The Department of Defense (1) Within the Department of Defense the Department of Army has the primary interest for Civil Defense and for coordinating participation by the Departments of the Navy and Air Force. (2) Each service of the Armed Forces is responsible for Civil Defense plans and preparations for its own installations. (3) The basic Civil Defense responsibilities of the Department of the Army are: (a) To encourage and assist civil preparation for self-protection, and to give military assistance during minimum periods of civil incapacity resulting from widespread warcaused disaster, when such assistance can be made available without conflict with the primary mission of the army. {b) To develop an explosive Ordnance disposal program (i.e., unexploded bombs, missiles, and projectiles). Technical training and planning assistance in this ordnance disposal program will be provided to Civil Defense planning agencies within the means available. (c) Army Commanders will assist, so far ,.as their resources permit, in orienting key civilian officials in these phases of Civil Defense and related matters wherein the military may have special knowledge or competence. (d) Army commap.ders will encourage and assist civil preparation for self-protection. Third Army disaster P1~ constitutes the basis for Federal support of the Civil Defense effort. (Army installation commanders are prepared to assist lecal communities in their Civil Defense planning).
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(e) Army installations in this State will participate in the mobile support program to the ext~nt that such pnrticipation is in consonance \vith the primary mission of the Army.
(4) Department of the Air Force is responsible for the
development of an aircraft Harning service designed to function as part of the Air Force Defense System. (5) Insofar as practicable, the Department of the Navy will also render maximum Civil Defense assistance together with th~ ~ and Air Force. c. The American Red Cross (1) Natural Dis~stors
The American Red Cross, by authority of Congressional Charter, has the responsibility in natural disaster relief to assist families and individuals. Plthough the organization finances its own program, it expects constituted authority to assume total direction end leadership for the disaster situn.tion in the community, and the Red Cross will function within its sphere of responsibility under q,overnmental leadership. The Red Cross prof!.ram in natural disastGrs is two fold. During the emergency tho organiza-
tion will assume responsibility for (1) food, (2) clothing, (3) shelter, and (4) supplemental medical aid. Within
these four fields are contained sustaining programs of registration and ans\<rering wGlfare inquiries. If government lacks total fad.liti es for warning, rescue and voluntary evacuation, the Bed Cross will assist government in these three phases, recognizing them, however, as governmental responsibilities. The second phase of the program involves rehabilitation. This means that to the extent there are long ranged disaster caused needs which affected families cannot meet with their own resources these needs will be provided by the Red Cross on a grant basis. (2? Civil Defense
Recognizing the titanic potentials of war-caused disasters, the Red Cross program will be modified in the event that a disaster is enemy provoked. Tho Rod Cross will, :if incorporc.ted into the Civil Defense plc.ns of political sub-divisions, 1mdertake the responsibilities
of (1) food, (2) clothing, (3) shelter, to tho limit of
its ~bility. Because its facilities will be taxed by these three responsibilities, it cannot assume supplemental medical aid beyond that required in shelters, nor assist government with wc.rning, rescue r..nd evncua.tion. Destruction by enemy attack obviates any Red Cross rehabilitation progrnm. Tho Rod Cross becomes a component of local Civil Defense Organization in war-caused disaster.
3. State (8ee Annsx I)
a. The Governor, by virtue of his office, is responsible for Civil Defense within the St'lte. The Gcrve:rnor has appointed D. State Diroator of Civil Defense and may dele-
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gate to him such authority as necessary to complete his mission. The State Office of Civil Defense in time of peace will function as a planning, advisory and coordinating agency. Prior to attack the State will coordinate, advise and assist the eritical target areas and communities in the formulation of the Civil Defense plans. In the event of attack the State will be responsible for the employment of mobile support forces and the establishment of evacuation centers and procedures. The Director will supervise the State Office of Civil Defense, which will be responsible for:
(1) Liaison between the Federal Government, other States and the political sub-divisions of this State.
(2) Coordination of all official State agencies, and semiofficial and private organizations on a state-wide basis.
(3) Transmission of air raid warnings to critical target areas.
(4) Determining, in conjunction with local authorities
the n\xmber 2 character and composition of mobile support units to be furnished by cities and communities of the State. Disposition of these units in case of emergency and control of such units until they reach the stricken arel'l.s. (5) Designation of mutual aid zones around critical target areas, the establishment of policies and regulations covering the formulation of mutual aid pacts. (6) Development of State-wide policies and plans with the cooperation of local authorities for evacuation or dispersion, including the accommodation of evacuees in reception centers. (7) The disposition of supplies and equipment which may be secured by the State and F'ederal Government for Civil Defense. (8) Upon direction by the Governor, the negotiation of inter-state pacts with contiguous states authorizing the utilization of mutual aid and mobile support units as well as reimbursement for out of State personnel and services rendered in this state during an emergency. (9) Assistance to municipal Civil Defense organizations for the purpose of coordinating local programs with state-wide requirements. (10) The conduct of public affairs incident to the Civil Defense program. (11) Formulation and implementr.tion of training programs at all levels. b. The Governor of the State hr,s primary responsibility for necessary legislc.tion to assure the operation of the State Civil Defense plan and to enable the coordination of Civil Defense efforts with contiguous States.
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4. Cormnunities
a. The duly designated authorities within each community are responsible to the people within their jurisdiction for formulating and implementing an adequate Civil Defense pl~n ready for instant use, and utilizing all existing ogencies of local Government supported by recruited volunteers and private institutions and orgcnizations to combat the effects of an emergency. b. Such nutho~ities are responsible for the enactment of necessary amendments to local ordinances so as to assure the rendering of mutual aid assistance and mobile support to other communities 'as needed. c~ Such authorities are simil."'rly responsible for close liaison with the State Office of Civil Defense to insure continuity of planning on a state-"~<ride basis. d. Local authorities will also be responsible for the following: (1) Adequate public air raid warning systems. (2) Development of local air raid shelters with the
assistance of State and Federal Governments by adapting existing structures for use as shelters to the maximum extent possible. (3) Provision of wardenrervices.
(4) Formation and training of mobile support Units
with assistance of State ~nd local governments. (5) Preparation of fire service plans and conduct of
fire service operations in an emergency, (6) The organization and training of local rescue ser-
vices with assistance from the State and Federal Governments. (7) Establishment and maintnnnce of internal communications system. (8) Supervision of a plant protection program with assistance from State and Federal Governments. (9) Training of local Civil Defense organizations under the general supervision of the State. (10) Pr~tection against sabotage and subversive activities.
(11) Control of panic within the locality.
(12) If stricken, complete operational control of all Civil Defense forces within the locality.
5. The Individual
a. To be cognizant of the plan of his community and his participation thorein. b. To assist actively and cooperate in the development and execution of the Civil Defense program. c. To prepare himself through Civil Defense training programs to render all possible assistance to his fellow mt.n in the event of an emergency.
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SECTION V. ORGANIZATION AND SHAIN OF :Jm'lAND
1. State a:--The Governor is supreme commander of all State Civil Defense forces and resources within the State. He will be assisted and advised by the State Council of Civil Defense and The Director of Civil Defense and by such other Advisory Boards and individuals as he may deem appropriate to appoint. b. When acting for the Governor or when d-elegated by him, the Director of Civil Defense will assume the responsibility and authority as outlined obove.
2. Q2~nities
a. Critical Target Area (1) MPyors of cities in this State designated by the Governor as critical target areas will head all Civil Defense activities within their respective areas. They shall nominate Civil Defense Directors to c2rry out these duties. Both the Mryor and the Civil Defense Director may and should be edvised by a local Council of ~ivil Defense. (2) The Najar City in a critical target area by mutual agreement will provide the leadership for planning an organization of the entire critical target area. In this manner, each critical target area mc.y be treated as an individual unit despite the fact that a number of communities may be involved. (3) Civil Defense Directors of critical target areas will maintain close liaison with the office of the State Director of Civil Defense and will form an exofficio Council to advise him on matters pertaining to their respective areas and be guided by them in the development of their mutual aid and mobile support plans.
b. Other Communities The duly designated authority of each community will head all Civil Defense c.ctivities within his area. He will be assisted and advised by the local Council of Civil Defense.
c. Alternate Commands Erch of the above groups and individuals will designate alternate commr.nd groups and individuals to assume complete operational control in the event of incapacitation of the primary command authority.
3. Chain of Co~~nd
The chr;in of coill.Ilk<>.nd will be from the State Director to the Community Dir~ctor.
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SECTION VI. LOGISTICS

1. An essential element of this plan is the compilation of data at each planning level, State and City, concerning the availability in emergency of th supplies, equipment and transport~tion required to meet the several con-
tingencies mentioned herein.

2. Sources, loec~tion and procurement method of these mef'.ns will be accurately compiled and made current. Actual procurement in advance of requirement, S:.ock piling or specifically ear-marking goods or services is not con-
templated hy the State.

SECTION VII. PLfl.NNING PHASES

1. Planning for Civil Defense should be divided into three distinct phases:

a. Organization and preparation phase;

b. Attack phase; and

c. Post-attack phase.

2. In each of these ph~ses, action at the operational level will vary depending upon the service involved. It is necessary, therefore, that plans indicate the type of action to be taken in each of these phases

SECTION VIII. OPERP.TIONS

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1. ~

a. Prepara~n Phas The State Civil Defense orgc.nization will net ns a pl~nning, advisory, coordinnting, and training agency during the organization and pro~~ration phase.
b. AtGack and Post-Attack Phase The State organization wi~direct mobile support from home station to the stricken area. Except for mobile support activities, ihis organization will become operational and take direct action only should evacuation or dispersal of population groups become necessary during tho attcck and post-attack phnse. Should this course of action be indicated, the ~tate orgnnization will provide for the necessary reception centers and essential services necessary to effect the evacuation or dispersal.

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2. Critical Trrget Areas
a. ~paration Phase Critical target areas will prepare detailed plans to include the following:
Enginesrin~ Services Public \Alorks and Utilies Transportation Lnw Enforcement Agencies Fire Services Emergency Communications Air R2id Warnings Shelter Services Special Weapons Defense Plant Protection Welfare Services Medical and Health Services Public Inform"l. tion and Educe.tion Training Supply Evacuation and Dispersion Warden Services
All Civil Defense plans will contain detailed check list of chronological actions to Je taken by each responsible agency therein to execute imm::ldiately the opere,tionnl responsibilities.
b. Attack and Post-Attack Phase Civil DefenseDirectors 1.orill plnce into effect the
operational provisions of their respective plans, issue timely warnings and instructions to local agencies, and keep the State Director informed of the situation and the progress of operations and r.dvise the State Director of the need or contemplated need for additional assistance.
['.. Pr.Es:tion_ Phase Communities will plan, organize and train mobile
support groups for utilization in stricken t.rer,s. These groups will contain teams composed of the services enumerated above. Mobile support groups will be self-sufficient and will hC;.vo o!_'gr:mic to them, sufficient transportation, food, clothing and bedding to enable them to operate independently for at least 48 hours. Mobile support groups will be organized into independent teams consisting of the individu'1l services so a s to provide for utilization of separate teams should the situation require. The FCDA Table of Organization and equipment will be followed in organizing the mobile support group.
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b. Attack o.nd Post Attack Phase Under direction ofthe State Director, the com.rn.rcnders
of mobile support groups will mobilize their groups and proceed to pre-arranged rendezvous points for integration into local Civil Defense effort. ?rch mobile support group will m'lintain its own leadership but will be supervised by the Civil Defense Director of the stricken area.
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