Foreign Relations of the United States, 1958–1960, Volume III, National Security Policy; Arms Control and Disarmament, Microfiche Supplement

123. NSC Report¹

NSC 5807/2

Washington, December 24, 1958

NOTE BY THE EXECUTIVE SECRETARY

to the

NATIONAL SECURITY COUNCIL

on

MEASURES TO CARRY OUT THE CONCEPT OF SHELTER

REFERENCES

• A. NSC 5724, 5724/1, 5807, 5807/1
• B. NSC Actions Nos. 1814, 1841, 1842, [illegible in the original], 1878, 1882, 1945, 1946, 1947, 1948, 2015 and 2020
• C. Memos for NSC from Executive Secretary:
  • (1) “Report to the President by the Security Resources Panel of the ODM Science Advisory Committee”, dated January 22, 1958
  • (2) “Measures to Carry Out the Concept of Shelter”, dated March 24 and 26, and November 5 and 13, 1958
  • (3) “Adequacy of Government Research Programs in Non-Military Defense,” dated July 1, 1958
  • (4) “The Number of Nuclear Weapons which Might be Tolerable to World Populations”, dated July 7, 1958
  • (5) “Survival of Population Following a Massive Nuclear Exchange”, dated June 27, 1958
  • (6) “Status of Shelter Measures as of June 30, 1958”, dated July 1, 1958

At the 360th NSC Meeting on March 27, 1958, the National Security Council, the Secretary of the Treasury, Judge Lawrence E. Walsh for the Attorney General, the Director, Bureau of the Budget, the Federal Civil Defense Administrator, Captain John H. Morse, Jr. USN for the Chairman, Atomic Energy Commission, and the Chairman, Council of Economic Advisors, noted and discussed a report on the subject (NSC 5807) and (NSC Action 1882, approved by the President on April 2, 1958):

(1) Agreed that certain measures should be undertaken to carry out the concept of fallout shelter for protection of the civil population against radiation hazard, in accordance with NSC Action No. 1842–d. A statement of these measures was circulated as NSC 5807/1.

(2) Deferred action on the measures recommended in paragraph 1–b (except the limited program in NSC Action No. 1882–b–(2)), 2–b, 2–c, 5–b and 6–a and –b of NSC 5807; pending consideration of certain studies and reports requested by the Council.

Subsequently, such studies and reports were submitted to the Council, which:

(1) Noted and discussed a report on “Adequacy of Government Research Programs in Non-Military Defense” (Reference C(3)) and referred it to the Director, OCDM, for study of the conclusions therein (especially Conclusion Nos. 6 and 7 on page 2 of the Summary) and such recommendations to the Council as he might deem appropriate (NSC Action No. 1945).

(2) Noted and discussed (NSC Actions No. 1946 and 1947) reports on “The Number of Nuclear Weapons which Might be Tolerable to World Populations” (Reference C(4)) and “Survival of Population Following a Massive Nuclear Exchange” (Reference C(5)).

(3) Noted and discussed (NSC Action No. 1948) a report on “Status of Shelter Measures as of June 30, 1958” (Reference C(6)); and noted that the Director, OCDM, would submit to the Council a supplementary status report following Congressional action on FY 1959, appropriations, and appropriate recommendations on shelter measures (including those on which action was deferred by NSC Action No. 1882–d in the light of Congressional action an appropriations and of further study of the reports referred to in subparagraphs (1) and (2) above.

In this supplementary status report (Reference C(2), November 5 and 18, 1958), the Director, OCDM, stated that, except for paragraph 5–b of NSC 5807, he did not recommend further action at that time on the shelter measures on which action was deferred by NSC Action No. 1882–d.

With reference to paragraph 5–b of NSC 5807, the recommendations of the Director, OCDM, were discussed by the Council on December 11 and 18, 1958. At the latter meeting, the Council (NSC Action No. 2020–b) agreed that, as an additional measure to provide some Federal example in the area of fallout shelter, the present program of shelter research and prototype construction should be broadened to provide specific emphasis on such research and prototype construction in existing Federal buildings. This action was approved by the President on December 24, 1958.

Accordingly, NSC 5807/1, revised by incorporation therein of NSC Action No. 2020–b and by deletion therefrom of paragraphs which called for reports which have now been noted and discussed by the Council, is transmitted herewith as NSC 5807/2 for appropriate implementation of paragraph 1 by the Director, OCDM, and of paragraph 2 by the Director, OCDM and the Director, Bureau of the Budget.

NSC 5807/2 supersedes NSC 5807/1.

James S. Lay, Jr.
Executive Secretary

cc: The Secretary of the Treasury

The Attorney General

The Director, Bureau of the Budget

The Chairman, Atomic Energy Commission

The Chairman, Council of Economic Advisers

The Chairman, Joint Chiefs of Staff

The Director of Central Intelligence

The Special Assistant to the President for Science and Technology

The Special Assistant to the President for Public Works Planning

Enclosure

MEASURES TO CARRY OUT THE CONCEPT OF SHELTER

1. By NSC Action No. 1882–b, the National Security Council agreed that the following measures should be undertaken to carry out the concept of fallout shelter for protection of the civil population against radiation hazard, in accordance with NSC Action No. 1842–d:

a. A research and development program along the lines of the recommendations in paragraph 1–a of NSC 5807, which reads as follows:

“(1) Research and Development, including prototype construction (exploiting multiple-use principle to the maximum)

$Millions

“(a) Research $6.5 (annual rate)

“Although sufficient knowledge of weapons’ effects and of shelter design now exists to permit proceeding with a complete and effective fallout shelter program if this were deemed desirable, expanded research is necessary to refine our knowledge, particularly of blast shelter, and develop more economical and efficient shelter models. In a program of this magnitude, well considered research should save many times its initial cost.

“The following program of research is already identified and can be undertaken as rapidly as funds are made available.

“(i) The field testing, with nuclear weapons, of shelters, other structures, and shelter equipment; provision for development and execution of radiological defense measures; exposure of animals to weapons’ effects; and the instrumentation necessary to evaluate results obtained.

----- $2.0 Millions

“(ii) The design of various prototype shelters, the development of shelter programs, and development and laboratory testing of structures, facilities, equipment and materials not requiring nuclear field tests.

----- $1.0 Million

“(iii) Studies dealing with psychological, emotional, educational and morale problems and determinations of tolerance limits under emergency conditions; medical, food, and water requirements in shelter habitation; and sanitary controls to permit tolerable occupation.

----- $1.5 Millions

“(iv) Development of architectural designs and specifications for new types of multiple-use shelters which will be attractive as well as practical. The Committee believes that attention should be given to the use of grants to schools of architecture and engineering which would stimulate curriculum development, training of new students, and new concept of shelter design.

“----- $2.0 Millions”

b. A limited program of prototype construction of relatively small-capacity fallout shelters, differing in design and type (including multiple-use) and adapted to differing conditions such as climate; appropriate tests by actual occupancy for realistic periods of time to be conducted after completion (total cost not to exceed $6 million).

c. A nation-wide survey along the lines recommended in subparagraph 2–a of NSC 5807, which reads as follows:

“2. Surveys and Pilot Studies

“a. Development of estimated availability of existing shelter on a sampling basis

“As a basis for national planning, definitive information is needed regarding the capability of existing structures to provide fallout shelter, particularly in large cities. The Committee recommends that a survey of existing structures be conducted on a sampling basis to yield such information. This would be handled through direct Federal contract, and would be completed in one year.

“----- $2.0 Millions”

d. Initiation of a program of public education along the lines recommended in paragraph 3 of NSC 5807, as modified by FCDA in the light of NSC discussion and as outlined below (cost estimated at not over $12.5 million for FY 1959; subsequent annual appropriations to be determined on the basis of experience) :

Outline of Proposed Coverage of FCDA

Information And Education Program

(1) Objectives

(a) Public understanding of nuclear weapons effects, particularly radiation.

(b) Instruction on effective measures of protection.

(2) Low-Key Characteristics

The program would avoid harmful over-excitement of the people by careful treatment of the nature and imminence of the threat.

(a) Prudence, not alarm, is the keynote. All of our best efforts will be directed toward avoiding nuclear war; but prudence and a concern for the Country’s future dictate the desirability of taking steps to improve chances of survival in order to rebuild and protect our national heritage if nuclear attack should occur. (We pay a lot of money for insurance of various sorts while doing our best to avoid the contingencies against which we are insuring ourselves.)

(b) The national fallout shelter policy is based firmly on the philosophy of the obligation of each property-owner to provide protection on his own premises. The Federal Government will provide information on how to do it, backed up by example of providing fallout protection in its new buildings in the future.

(3) Programs

(a) Support of adult education programs to increase understanding of (i) the effects of nuclear weapons, (ii) what can be and is being done to provide protection, and (iii) the place of individual preparedness in the total national security program.

(b) Combination of training films, instruction materials, magazine articles (popular, trade, etc.), newspaper features, TV programs, etc., aimed in appropriate combination at the following broad subjects:

(i) Nuclear weapons effects on people, plants and animals.

(ii) How to provide fallout protection.

(iii) Family fallout protection (including simple “How-to-do-it” information).

(iv) Improvised home and basement shelters.

(v) Protection of food and water.

(vi) What governments (Federal, State, local) are doing about fallout protection.

(vii) Radiological decontamination.

(c) The use of national organizations to disseminate information.

e. The elements of a base for rapid acceleration along the lines recommended in paragraph 4 of NSC 5807, which reads as follows:

“4. Elements of a Base for Rapid $Millions

Acceleration $ 1.5 (annually)

“The measures proposed above are designed to promote shelter construction without extensive financial participation by the Federal Government. The Committee recognizes, however, the possibility that these measures may be ineffective and that the Government might later wish to initiate a shelter program on an accelerated basis. Many of the other recommended measures will assist in preparing a base for rapid expansion, but in addition it is believed that specific attention should be given to the preparation of a “shelf” of plans and information which might save months of delay in an emergency.

“Specific items proposed are:

“(1) Identification of materials, equipment and manpower

----- $1 Million (annually)

“(2) Preparation and maintenance of standby orders and organization

“----- $0.5 Million (annually)”

f. The incorporation of fallout shelter in the construction of new Federal civilian buildings, of suitable size, designed after this date, along the lines recommended in paragraph 5–a of NSC 5807, which reads as follows (supplemental appropriations for such shelter in buildings for which funds have already been appropriated will not be sought):

“5. Incorporation of shelter in civilian Federal buildings

“The Committee agrees that Federal example is an indispensable element in any combination of measures designed to stimulate State, local government, and private spending for fallout shelters.

$Millions

“a. New Construction $6.5 (annually)

“Projections of new Federal construction activity (including the Post Office construction program, but excluding military construction) indicate a potential level of about 125,000 shelter spaces annually at an average cost of $52 per shelter space. This assumes utilization of new buildings for community shelter where practicable, thereby setting an example to local Government and business, and avoiding charges of favored treatment for Federal employees.”

2. By NSC Action No. 2020–b, the National Security Council agreed that, as an additional measure to provide some Federal example in the area of fallout shelter, the present program of shelter research and prototype construction should be broadened to provide specific emphasis on such research and prototype construction in existing Federal buildings.

1. Source: “Measures To Carry Out the Concept of Shelter.” Top Secret. 9 pp. NARA, RG 59, S/S–NSC Files: Lot 63 D 351, NSC 5807 Series.