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, Capt. John H. Morse, Jr., USN, for the Chairman, Atomic Energy
Commission, and the Chairman, Council of Economic Advisers, at the 360th
Council Meeting on March 27, 1958, noted and discussed the report on the
subject (NSC 5807) prepared by the
Interdepartmental Committee established for the purpose by NSC Action No. 1842–e,
in the light of (1) the comments and recommendations of the NSC Planning Board on NSC 5807, transmitted by the reference memorandum of March 24,
1958, and (2) the views of the Joint Chiefs of Staff on NSC 5807 (transmitted by the reference
memorandum of March 26, 1958) and on the above-mentioned Planning Board
comments and recommendations (as summarized orally at the meeting).
cc: The Secretary of the Treasury
The Attorney General
The Director, Bureau of the Budget
The Chairman, Atomic Energy Commission
The Federal Civil Defense Administrator
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
[Typeset Page 149]
“(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
[Facsimile Page 4]
“(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
concepts of shelter design.
-----$2.0 Millions
“While the above program will be of highest importance in improving our
capabilities to develop a comprehensive shelter system, there are
serious unsolved problems relating to effects of nuclear attack on
humans, including the immediate and long-range effects of radiation, and
to the development of measures to provide protection against or mitigate
those effects. The Committee feels that a special assessment is required
to determine whether present research efforts in this field by the
several agencies of Government are reasonably adequate or whether
further coordination or acceleration is indicated. It is therefore
recommended that a suitable group be designated to evaluate the present
efforts and to report on their adequacy, including recommendations for
improvement of the total national effort, if such is warranted.”
b. A research and development program along the
lines of the recommendations by the NSC
Planning Board, as follows:
(1) The Special Assistant to the President for Science and Technology to
recommend a qualified group to make a special assessment as to (a) the
adequacy of present research efforts by the several agencies of
Government on the design and testing of shelters and on the effects of
nuclear attack on humans, including the immediate and long-range effects
of radiation and measures to mitigate such effects;
[Facsimile Page 5]
and (b) whether such
research efforts should be better coordinated, integrated, or
accelerated. (Paragraph 1, page 1, of the enclosure to the reference
memorandum of March 24, 1958.)
(2) The Atomic Energy Commission, in consultation with the Special
Assistant to the President for Science and Technology, to
[Typeset Page 150]
undertake
through appropriate means a study appraising the upper limits of massive
concentrated nuclear detonations and their by-products which could be
tolerated by the peoples of the world and by the world itself.
(Paragraph 2–a, page 3, of the enclosure to the
reference memorandum of March 24, 1958.)
(3) The Office of Defense Mobilization and the Federal Civil Defense
Administration, in consultation with the Special Assistant to the
President for Science and Technology, to undertake a study appraising
the problem of survival of populations in the period following their
coming out of shelter after a massive nuclear exchange. (Paragraph 2–b, page 3, of the enclosure to the reference
memorandum of March 24, 1958.)
c. 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).
d. 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
[Facsimile Page 6]
such
information. This would be handled through direct Federal contract, and
would be completed in one year.
“-----$2.0 Millions”
e. 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.
[Typeset Page 151]
(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.
[Facsimile Page 7]
(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.
f. 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 Acceleration $Millions
$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
[Typeset Page 152]
these measures may be
ineffective and that
[Facsimile Page 8]
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)”
g. 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.”
