EVACUATION AND PROTECTION OF U.S. CITIZENS IN DANGER AREAS
ABROAD
It is recommended that, if the Council adopts the enclosed statement of
policy, it be submitted to the President with the recommendation that he
approve it; and direct its implementation by all appropriate Executive
departments and agencies of the U.S. Government under the coordination of
the Secretaries of State and Defense.
cc: The Secretary of the Treasury
The Director, Bureau of the Budget
The Chairman, Joint Chiefs of Staff
The Director of Central Intelligence
Enclosure
Statement of Policy
EVACUATION AND PROTECTION OF U.S.
CITIZENS IN DANGER AREAS ABROAD
GENERAL CONSIDERATIONS
1. Every reasonable effort must be made to protect U.S. citizens abroad
in the event of imminent or actual general hostilities, localized
hostilities or civil disturbances; including the evacuation of such
citizens to relatively safe areas, and provision for their welfare if
such evacuation is not possible. Primary factors influencing any
decision to implement emergency plans for the protection of U.S.
citizens abroad are:
a. The imminence of danger.
b. The capability and willingness of local
authorities to provide adequate protection.
c. The effect of an evacuation on the local or
international situation.
d. The availability of evacuation facilities and
relatively safe holding areas.
e. The essentiality of reducing the numbers of
U.S. noncombatants in probable combat areas in order to:
(1) Avoid impairment of the combat effectiveness of U.S. and allied
military commanders necessitated by their care, and to
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(2) Minimize the hazards of their capture as hostages.
2. It is essential that flexibility be provided in planning for the
protection and welfare of U.S. noncombatants in danger areas overseas,
since the probability of successful evacuation of such persons to the
United States or their movement to relatively safe holding areas could
be substantially reduced by:
a. Political considerations prior to actual
outbreak of hostilities, and
b. The disruption of transportation, port and
airport facilities incident to a massive attack.
In view of these factors, emergency planning should provide for the
disposition and welfare of U.S. citizens overseas within their host
countries as well as for evacuation to the United States or movement to
relatively safe holding areas. This “standfast” planning is applicable
to the eventualities of localized hostilities and civil disturbances as
well as general hostilities.
POLICY OBJECTIVES
3. In the event of imminent or actual general hostilities, localized
hostilities or civil disturbances:
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a. To protect U.S. citizens including, if
necessary and feasible, their evacuation to and welfare in relatively
safe areas.
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b. To reduce to a minimum the number of U.S.
citizens subject to the risk of capture as hostages.
c. To reduce to a minimum the number of U.S.
citizens in probable combat areas in order not to impair the combat
effectiveness of U.S. and allied military commanders.
POLICY GUIDANCE
4. In furtherance of the foregoing policy objectives, the Secretaries of
State and Defense shall:
a. Conduct a continuing review of conditions
abroad with respect to:
(1) Imminence of general or localized hostilities or civil disturbances
which may involve U.S. citizens.
(2) The capability and willingness of local authorities to provide
adequate protection.
(3) The numbers and locations of U.S. citizens.
(4) The evacuation and protection capability, including availability of
relatively safe holding or survival areas.
b. Make recommendations to the President if
required for the timely reduction of the number of U.S. citizens in an
area.
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c. Maintain plans for: (1) evacuation of U.S.
citizens to the United States or their movement to and welfare in other
relatively safe areas; and (2) “stand-fast” and welfare of U.S. citizens
in the countries where appropriate.
5. Normally, the decision to initiate evacuation shall be made in
Washington, taking into consideration the recommendation of the
principal U.S. diplomatic or consular representative in the country
concerned, or of the appropriate U.S. Military Commander. The following
additional considerations apply in initiating evacuations:
a. Evacuation not Involving the
Use of U.S. Military Forces and Facilities: When hostilities or
disturbances occur with complete surprise or are so imminent as to
jeopardize the safety of U.S. citizens and conditions do not permit
communication with Washington, the principal U.S. diplomatic or consular
representative is authorized to initiate such action as the gravity of
the situation warrants.
b. Evacuation Involving the Use
of U.S. Military Forces and Facilities: Because of the grave
international consequences that may be involved, the President’s advance
approval for the use of U.S. military forces and facilities is required
except:
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(1) Where such use would be limited to non-combatant military forces and
facilities which are normally assigned to the diplomatic or consular
mission concerned or which are used routinely for the
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transport of personnel,
supplies, and equipment into and out of the country from which
evacuation is to take place;2 and
(2) In those extreme cases where conditions do not permit either the
principal diplomatic or consular representative in the area concerned or
the appropriate military commander to obtain Presidential approval in
time to initiate effective action.
c. Responsibility for initiating action under the
circumstances described in b–(1) and (2) above
devolves in the following order:
(1) The principal U.S. diplomatic or consular representative in the
country or countries concerned has primary responsibility for making the
decision that immediate use of military forces and facilities is
necessary for evacuation or protection of U.S. citizens and for
requesting assistance from the appropriate military commanders, who will
respond to the extent which he considers militarily possible.
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Responsibility for the execution of such evacuation centered military
operations rests wholly with the military commander, coordinating,
[illegible in the original] with policies of the principal U.S.
diplomatic or consular representative.
(2) If timely communications cannot be established between the principal
diplomatic or consular representative in the country concerned and the
appropriate military commander, the military commander concerned shall
assume the responsibility for undertaking the above actions.
6. In implementing the guidance outlined in 5, the Secretary of State
shall have over-all responsibility for the protection and evacuation of
U.S. citizens abroad. In certain areas the Secretary of Defense shall
have primary responsibility for the protection and evacuation of those
U.S. citizens specified jointly by the Secretaries of State and Defense.
The Secretary of Defense has supporting responsibility for the
evacuation of all other U.S. citizens abroad.
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NOTE ON FINANCING
1. The cost of the preparation of evacuation plans and the necessary
support thereof, in times of peace, is absorbed by the several
Departments concerned out of their regular operating budgets.
2. It is impossible, at this time, to estimate the cost of evacuation in
time of emergency, because conditions under which evacuation will occur
can not be foreseen.
