Foreign Relations of the United States, 1977–1980, Volume IV, National Security Policy

172. Memorandum From the Deputy Secretary of Defense (Claytor) to President Carter¹

Washington, January 9, 1980

SUBJECT

• Civil Defense Program Funding (U)

(U) In accordance with your instructions that my Department and the National Security Council exercise oversight responsibility for Civil Defense programs and policies, my staff took part in the Federal Emergency Management Agency’s formulation of the FY81 Civil Defense program. Our aim throughout was to insure that the program meets the letter and intent of your Civil Defense policy (PD–41).²

(C) We have examined the details of FEMA’s proposed FY81 program and concur with FEMA Director John Macy’s assessment that it represents a start on the first year of a seven year effort and, as such, is minimally consistent with your policy as defined in PD–41. Defense had budgeted for a start in FY80, but Congressional reductions have precluded that course. We would have preferred a larger level of effort in FY81, but recognize the constraints of fiscal reality.

(S) Nevertheless, we must point out that this is the second consecutive year in which a civil defense budget ceiling has been imposed which calls into question realistic achievement of a credible capability for crisis relocation of our civil population.

(S) The PRM–32 study³—upon which PD–41 is based—concluded that such a credible capability for crisis relocation was needed, and that when achieved, it would enhance deterrence and stability, contribute to favorable perceptions of the Soviet-American strategic balance, and reduce our susceptibility to Soviet coercion in time of crisis. In 1978, we developed a specific program to realize such a capability. This program, known as D-Prime, called for a crisis relocation capability to enhance population survival, in-place fallout protection, and emergency operating centers in host areas. During the examination of a range of costs to implement each of the candidate programs, we estimated that such a capability could be achieved over a five to seven year period with an average annual funding of $230 million, an initial outlay of $136 million and progressively greater levels of funding in the outyears.

(S) We still believe that it is necessary to acquire a nationwide crisis relocation capability at the earliest practical date, and that program D-prime is the surest and most cost-effective way to meet the requirements of your policy. This is the program that FEMA will begin to implement in FY81. If, however, annual funding for FY82 and beyond continues to be held to the previous year’s level, a credible capability for crisis relocation on the scale necessary to achieve the objectives of PD–41 may never be attained. This issue should be resolved before the FY81 budget hearings.

W. Graham Claytor, Jr.

1. Source: Carter Library, National Security Affairs, Staff Material, Defense/Security, Welch, Box 210, Civil Defense. Secret.
2. See Document 91.
3. See the attachment to Document 72.