ble nuclear war. Civil defense has been perilously neglected. If general nuclear war were to occur today, millions of Americans would be needlessly killed or injured by radioactive fallout. As the committee knows, and pointed out in its landmark report of 1956, these casualties can be prevented.

Let me briefly describe the scope of the civil defense responsibilities assigned to the Department of Defense.

Shelter The key element

I wish to provide the strongest kind of support for the shelter program which has been laid before this committee by the Secretary of Defense. Without shelter, there is no civil defense. As a result of the intensive planning, research, and technological development done by OCDM and others over the past years, shelter is now ready to move from the incubation stage into the action stage, beginning logically with a program to identify and make use of the shelter potential of existing buildings (as I specifically recommended to the President). As a result of sample surveys conducted by OCDM, indications are that about one-fourth of our people could be adequately sheltered in this manner very quickly and at minimum expense. This is not to say, as this committee correctly pointed out last year, that this is an existing capability; it is a potential which will provide the most shelter for the least cost in the shortest time.

It is also essential that the Federal Government move ahead to incorporate shelter in suitable Federal buildings-both old and newcivilian and military and to make these shelters fully operational for use by the American people.

We must not forget that some form of specially prepared shelter is available today for many millions of urban residents of the U.S.S.R. The inclusion of shelter in new apartment and industrial buildings has been standard practice in the Soviet Union since 1949. In addition to the shelters for the general population, the U.S.S.R. has an extensive system of shelters for Government and party elite.

If I am not mistaken, members of this committee have personally seen the shelter capability of the deep Moscow subway system.

ADDITIONAL DEPARTMENT OF DEFENSE RESPONSIBILITIES

In addition to the shelter program, the DOD has been assigned responsibility for

(1) Developing an improved capability for bringing warning to the public. The existing outdoor warning system at present reaches only about 35 percent of the American people. OCDM has developed, and field tested over the past 2 years, a home alerting device which we call NEAR, short for National Emergency Alarm Repeater system. This system consists of two main parts; (a) an electric generator which is installed in powerplants throughout the nation to superimpose a 240-cycle harmonic upon the 60-cycle normal current for a continuous 10-second interval, and (b) a wall plug-in device for the home, which is triggered by the 240-cycle harmonic to produce what we believe is a foolproof all-weather alerting system which can reach every home in America served by our electric power networks;

(2) An improved emergency communication system—an important feature of which is a radio backup for existing communications which may be destroyed;

(3) Public education and training programs for civil defense; (4) A strengthened civil defense research program;

(5) An augmentation of the national radiological monitoring and detection system;

(6) Guidance and assistance to the States in concert with OEP in developing organizational readiness to perform essential disaster services in an emergency.

I have stressed the fact that shelter and these related civil defense systems can best be planned and evaluated as part of a total defense structure.

I should like to place equal stress on another aspect of the problem which has been very much in all our minds, in developing this organizational change. This is the fact that civil defense is, and must remain, essentially civilian in character. We cannot simply turn the job over to the military and forget it. The nature of war has changed, however. A nuclear attack could create "theater of war" conditions where the military must be prepared to assist civil government to maintain law and order to save lives and meet disaster-created needs. This is part of the broad civil defense role the President has assigned to the DOD. The Secretary of Defense will be supported in carrying out this function by all agencies of Government as appropriate, including the OEP.

II. THE ROLE OF THE OFFICE OF EMERGENCY PLANNING

As a second main point, you have requested a statement of the role of the OEP under the reorganization approved by the President on July 20.

The transfer of responsibility for shelter and related systems to the Secretary of Defense was made in accord with my recommendations and advice. Its purpose was to obtain full utilization of the resources of the Federal Establishment. This is sound, and in accordance with the intent of Congress as expressed in section 405 of the Federal Civil Defense Act of 1950, as amended, which specifies that full use should be made of existing agencies for civil defense purposes. Other assignments of civil defense and defense mobilization responsibility previously made to other departments and agencies of the Federal Government remain in full force and effect. OEP will advise, assist, and when directed, act for the President in determining policy for, planning, directing, and coordinating the total program.

Within the Executive Office of the President OEP will be a staff arm to assist in the discharge of those responsibilities which pertain to the function of the Presidency itself.

The responsibilities which remain with the President are large and complex-but can and should be capably handled with the assistance of a reduced staff.

In the past, the top management of OCDM has been required to give predominant attention to the many day-to-day operating problems demanding immediate solution. As a result, the true staff functions have been neglected.

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What are these neglected functions, and what does the OEP intend to do about them? First, let me make it clear that the primary func tion of the OEP is to advise and assist the President. This is the nature of a Presidential staff agency.

Certain broad areas, however, have been identified by the President for intensified staff assistance. Also I can indicate some of the gaps which I see in the overall program at this time. It should be understood that some of the corrective measures we have in mind are still in the formative stage, because up to now our principal concern has been the definition of "major program needs" and effective organizational arrangements to carry them out.

Planning and organizing the overall nonmilitary defense program The President, as Chief Executive and civilian Commander in Chief, is responsible for the overall nonmilitary defense plans including civil defense. He must be sure that there are no major gaps, and that all the parts of the program are moving in concert. I am sorry to report that, for various reasons, this has not been the case in the past. There is need to develop and define "basic security objectives" in terms of the job to be done, and these integrated pieces of work programs must be spelled out and specific assignments made for their executions.

A major job for the Office of Emergency Planning, therefore, will be the development of such a comprehensive plan and patterns of functions to be performed to insure that all elements in the Federal family are moving in step toward our national security objectives. One complicating factor from an organizational standpoint is that there are no existing civilian counterpart agencies for some of the wartime responsibilities which the President must perform, such as economic stabilization, telecommunications, censorship, and transportation. In such cases, it is vitally necessary, in addition to substantive program formulation, to develop advance arrangements for establishing, organizing, and staffing such agencies so they can be brought into being quickly when the emergency need occurs. This subject will be covered more fully later in this testimony, as you have requested. I just wanted to identify it briefly now as one of the retained functions, Strengthening, mobilizing, and managing the Nation's resources for maximum national security

With the assignment to the Department of Defense of major civil defense activities, OEP should now be able to devote more attention to the Nation's basic resources picture and the broad, long-range national resources responsibilities inherited from its predecessor agencies the NSRB and the ODM-and deriving from the National Security Act of 1947, the Defense Production Act, and other statutes. The essential elements of this basic role include: (a) emergency resources management activities, including stockpiling; (b) programs to strengthen the Nation's basic resources posture; and (c) cold war and economic warfare activities. I shall discuss this role also more fully later in my statement,

Research

Another important area of activity of the OEP involves research, Research is the key to progress in the modern world. It is also increasingly the key to successful management. In the field of non

military defense, a much more comprehensive research base is required than has obtained in the past. The Office of Emergency Planning will not duplicate research being undertaken in other agencies, nor will it undertake research on hardware or components necessary to support functions which have been assigned to other agencies. It will, however

(a) Strengthen its policy-oriented research with particular emphasis on defining the parts and proper relationships of the total nonmilitary defense system;

(b) Intensify its economic research, both through contract and through the use of its inhouse capability at the National Resources Evaluation Center, to explore problems of balancing the supply and requirements of basic resources, and to generate feasible postattack economic recovery programs;

(c) Establish much closer liaison with the scientific and academic community through a system of scientific advisory committees, to enlist the assistance of scientists of all disciplines in this vital national task; and

(d) Establish more effective liaison with Government agencies conducting research on all aspects of our national security. In the past there has been inadequate staff devoted to this task and certain barriers have hampered the free flow of information between agencies. I intend to see that both of these deficiencies are corrected.

Informing the people of America

Certain public information functions will be retained in the OEP. In a democracy, the public must be informed. Without such information, there can be little understanding, hence little support for effort to improve our national security posture. The need is particularly acute in the field of nonmilitary defense. There is little precedent for such efforts in our history, and the basis for necessary understanding must be developed vigorously. As the President indicated in his address of July 25, the people simply do not know, in clear and simple terms, what needs to be done to cope with the threats in today's world.

While public information is by no means the exclusive responsibility of the President, the people do properly and inevitably look to the President for guidance in matters of signal importance to the Nation and its security. Standing as he does, at the pinnacle of the governmental system in the United States, the President is in a unique position to answer questions which remain in people's minds about the nature and imminence of the threat, and the necessity for certain actions.

Coordination

Another major and continuing responsibility of the OEP is to advise and assist the President in the coordination of the activities of the Federal Government in the total nonmilitary defense field, which, of course, includes civil defense. This I do not envisage as a job of looking over the shoulders of the operating agencies on a day-to-day basis, because I believe that anyone given responsibility for a job must be given wide latitude in determining how that responsibility can best be discharged. It is inevitable, however, that problems will arise in this vast, new, and complex undertaking and that a staff unit is needed

within the Executive Office to assist the President in this matter. The OEP will also coordinate the actions taken by Federal and State officials to prepare to conduct emergency operations. It will have primary responsibility for stimulating and coordinating Federal civilian readiness measures.

Leadership

The civil defense program cannot succeed without the strong support and cooperation of the Governors of the several States and other State and local officials. The OEP will assist the President in stimulating civil defense participation by State and local governments and in providing a channel to assist in the flow of information from the President to the Governors. The OEP is also charged with helping the States arrange interstate civil defense compacts and with providing assistance to the States in arranging through the Department of State mutual civil defense aid agreements between States and neighboring countries.

Reporting evaluation

The President is responsible not only for a well-planned and wellorganized program, but also with the effective execution of the program in practice.

Unfortunately, evaluation and reporting is a field which requires considerable improvement. Let me be specific: As this committee discovered in 1959, in the important field of shelter construction the Government had no figures on the number of shelters which had been built in the United States. I intend to aid and support the Secretary of Defense in seeing that this gap is plugged and to assist the President in seeing that an adequate basis is established for reporting progress in the nonmilitary defense program as a whole.

These several program areas, plus the continuity-of-government function which I will discuss in more detail later, constitute, in general terms, the new role of the OEP.

III. THE UTILIZATION AND COORDINATION OF THE FEDERAL

ESTABLISHMENT

The third main topic upon which this committee requested my specific testimony is the utilization of the resources of the Federal establishment and the proper coordination of their activities.

Many agencies of Government have important nonmilitary defense functions to perform, both in civil defense and in strengthening, mobilizing, and managing our resources. The objective of organizing the Government in this area is clear. It is to assure the performance by the regular departments and agencies of the Government of nonmilitary defense functions which are most clearly related to their established roles and capabilities-a very important point.

As this committee knows, the problem of obtaining full utilization of Federal agencies has a long and troubled history. I believe that the assignment of responsibility to the Secretary of Defense for shelter and associated civil defense functions represents the largest step forward in this area in many years.

Similar actions with respect to civil defense functions are in preparation to strengthen the assignment of responsibilities to other