| Appendices |
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2. An outline of the Dispersal Scheme
3. Targets for conventional air attack
4. Local authority tasks for Exercise Hard Rock
6. Precautionary measure to be taken
The sources for the story of home defence in the Cold War fall, rather like the story itself, into two parts. For the pre-1970 period most of the information comes from government files held at the Public Record Office, part of the National Archives. The staff there have found over 800 files for me and the service they give is a model for any public organisation. Most of the files referred to originate from the Home Office, the Treasury and the defence ministries but some useful information has turned up in surprising places such as files from the Charities Commission and the Ministry of Health. Unfortunately, there is still a cloak of secrecy surrounding many aspects of the subject particularly relating to preparations for the continuity of central government and information relating to many operational matters has not been kept. Apart from the Public Record Office files, the instruction manuals and circulars prepared for the Civil Defence Corps have been useful although there is a constant problem in distinguishing between what was officially announced or planned and what actually happened.
Public records are rarely released until 30 years after the file was closed so there is little information in the Public Record Office relating to events particularly at the central government level after 1970. I have used many Emergency Services Circulars and manuals issued by the Home Office for this period together with war plans from county and district authorities that have been made available by their Emergency Planning Officers. Again, there is a problem in distinguishing plans from reality and discussions with the people concerned at the Home Office, the Emergency Planning College and many local authorities have been very useful. The availability of information has meant that the story of the 1950s and 1960s is weighted towards central government whilst that of the 1970s and 1980s towards local activities, although this also mirrors what happened in reality.
The owners of the former controls at Kelvedon Hatch, Hack Green, Dover and Mistley who have given me free access to the papers left behind by the former owners of the bunkers and information that they have subsequently obtained have also helped greatly. I have also drawn on the findings from many members of the Cold War Research and Study Group, which is part of Subterranea Britannica. The group’s superb web site at www.subbrit.org.uk/ is the definitive source for information on and pictures of British Cold War civil defence architecture.
Few books have been previously published on home and civil defence and some are very inaccurate and politically biased. However, Duncan Campbell’s “War Plan UK” published in 1982 still makes interesting reading, as does the “Greater London Area War Risk Study”. “Civil Defence”, T H O’Brien’s official history of civil defence during the last war shows how much of the practices adopted in the Cold War mirrored those from World War ll.
2. An Outline of the Government Dispersal Scheme for the South West Region in 1963
Evacuation from the likely target areas had been in the minds of the planners since the first days of civil defence. It was seen as vital by the Strath Report who supported the idea of evacuating some 11½ women and children from the cities but with the proviso that working men must stay to keep the economy going.
In typically impractical fashion it was thought that these people could be moved considerable distance in a few days with 6.75 million going by train, 2.7 million by bus and 1.85 million by private transport. These figures were said to be possible because for example 3 million people travelled every day on the trains and the capacity of all the buses in the country was some 3 million.
By 1959 this idea had been abandoned in favour of a more restricted scheme to evacuate some 6 million people from the major conurbations to reception areas. Plans were worked out to move people and in 1962 considerable publicity was given to an evacuation exercise called Operation Bluebell which involved moving 4000 people using the Bluebell Railway and 36 rest centres. This exercise however had taken months of planning and required large numbers of volunteers. It would have been a different matter to move millions of unprepared people at a few days notice. And whilst the movement plans were worked out no thought was given to the long term billeting of the evacuees. The plan was always considered doubtful and it was thought that it might not be practical and might simply add to the general confusion. However, the existence of a plan was seen to give the government at least the option of putting it into effect. By 1966 the impracticality of moving the evacuees possibly hundreds of miles to supposedly safe areas had been abandoned in favour of one where they would be moved a maximum of 50 miles.
The early 1960s official evacuation scheme envisaged moving certain people in the “priority classes” from the more densely populated areas known as Dispersal Areas to the more lightly populated areas known as Reception Areas. Certain areas called Neutral Areas would neither gain nor lose people.
The main classes of people to be dispersed were –
The Dispersal Areas in the South West were Bristol and Plymouth and the surrounding areas. The Neutral Areas were Bath, Swindon, the Scilly Isles, most of Wiltshire, parts of Somerset and Gloucestershire near Bristol and parts of Cornwall and Devon near Plymouth. The rest of the region was considered to be Reception Areas.
Some 339000 people would be moved from the Dispersal Areas leaving 450000 behind. At the same time the Region would receive some 1½ million people from other Regions to increase the total population by nearly 50% to 4 ¾ million. The population of Somerset would double.
This is a list of military targets “attacked” during a 2 ½ day period in the conventional war phase of Exercise Hard Rock.
| Abingdon | Clyde | Lakenheath | St Mawgan |
| Alconbury | Colchester | Leeming | Saxa Vord |
| Aldershot | Coltishall | Leuchars | Scampton |
| Conningsby | Lindholme | Sculthorpe | |
| Beaconsfield | Cromarty Firth | Loch Ewe | Sealand |
| Bawdsey | Lossiemouth | Stafford | |
| Bawtry | Donnington (COD) | Lyneham | Stanmore Park |
| Benson | Dover | Staxton Wold | |
| Bentley Priory | Fairford | Machrihanish | |
| Bentwaters | Farnborough | Marham | Turnhouse |
| Binbrook | Faroes | Mildenhall | |
| Bishops Court | Finningley | Mountwise | Upper Heyford |
| Boscomber Down | Forth | ||
| Boulmer | Fylingdales | Neatishead | Waddington |
| Bracknell | North Coates | Wattisham | |
| Brampton | Gatwick | Northolt | West Drayton |
| Brawdy | Northwood | West Raynham | |
| Brize Norton | Hendon | Newbury | Wilton |
| Buchan | High Wycombe | Wittering | |
| Burton Wood | Holy Loch | Odiham | Woodbridge |
| Honington | Wyton | ||
| Catterick | Pitreavrie | ||
| Chelveston | Immingham | Portlant | |
| Chatham | Invergordon | Portreath | |
| Chilmark | Portsmouth Dockyard | ||
| Kinloss | |||
| Chivenor | Lirkliston | Rosyth | |
4. Additional tasks for the local authority in war
The following is a list drawn up for Exercise Hard Rock in 1982 showing the additional services which the local authorities would be called on to provide in the conventional war phase and the constraints on them.
Local warnings difficult or arduous
Information and advice to public fire fighting
Rationing ambulance
Shelter highways
Billetting housing
Rest centres social services
Rescue mortuary services
Treatment of casualties transport
Demolition education
Repair traffic control
Communal feeding policing/protection
Assessment of consequences of attack courts
Emergency transport supplies of water etc
Emergency supplies
Emergency deployment of staffs and volunteers
Emergency training
Allocation of supplies
Emergency communications
Aid to other authorities
Resources cash/credit
labour
skills/knowledge
equipment
communications
services
Reduced efficiency overwork
worry
obstructiveness
The following list of 81 probable targets for nuclear attack was prepared by the Joint Intelligence Committee for the Machinery of Government in War Sub-Committee of the Home Defence Committee in 1967.
Most targets were expected to be attacked by both missiles and aircraft, usually with 4 x 500-kiloton airburst weapons. London was expected to be targeted with 10 weapons totalling 9 megatons.
Government (central) - London, Cheltenham.
Government (regional) - The 12 former RSG sites were considered as possible targets.
Military - Northwood, Plymouth, Pitreavie, Fort Southwick, High Wycombe, Ruislip, Bawtry.
Bomber bases
Scampton, Wittering, Waddington, Honiton, Cottesmore, Marham, Coningsby, St Mawgan, Lossiemouth, Macrihanish, Leeming, Gaydon, Finningley, Valley, Bedford, Brawdy, Yeovilton, Lynham, Wyton, Pershore, Boscombe Down, Kinloss, Manston, Ballykelly, Filton, Leconfield, Alconbury, Bentwaters, Woodbridge, Wethersfield, Lakenheath, Upper Heyford.
Seaborne Nuclear Strike Bases
Bases - Garelock(Clyde), Holy Loch, Rosyth, Portsmouth, Devonport.
Communications – Rigby, Criggion, Anthorn, Inskip, New Waltham, Londonderry, Thurso.
Major Cities
Glasgow, Birmingham, Liverpool, Cardiff, Manchester, Southampton, Leeds, Newcastle, Bristol, Sheffield, Swansea, Hull, Middlesborough, Coventry, Wolverhampton, Leicester, Stoke-on-Trent, Belfast, Edinburgh, Nottingham
Control centres – Bentley Priory, West Drayton.
Fighter bases - Coltishall, Leuchars, Wattisham, Binbrook.
Surface-to-air missile sites – Woodhall Spa, North Coates, West Raynham.
Radar sites – Fylingdales, Boulmer, Patrington, Bawdsey, Neatishead, Buchan, Saxa Vord, Staxton Wold, Feltwell.
The following list comes from a 1957 Admiralty report on the meeting of the Global War Planning Panel.
“Measures proposed to be put into effect automatically on declaration of a precautionary period
1. All departments will review the state of their war preparedness, appoint duty officers and where necessary provide departmental arrangements for rapid execution of precautionary measures as appropriate.
2. Personal and Top Secret warning telegrams will be sent to authorities overseas.
3. Press and broadcasting censorship concerning the emergency under the D Notice Scheme.
4. The Main Government War HQ will be partially (virtually completely (?)) manned.
5. The Reserve Government War HQ will be fully manned.
6. Regional Commissioners will take post.
7. Regional joint civil/military HQs will be manned.
8. Regional and Local Government staff will be strengthened.
9. The Strategic Bomber Force will be alerted without recall of reservists.
10. The Air Defence of UK will be alerted without recalling reservists.
11. The Active Fleet will be deployed for operations without recalling reservists.
12. The following measures are also possible –
a) alerting the Control of Radio Transmission Organisation.
b) Protection of Key Points against sabotage
c) Confidential advice to the British Transport Commission, Airways Corporations, Shipowners, Oil Companies and Public Utility Undertakings on impending requirements.
d) Confidential advice to owners of merchant vessels concerning routing.
e) Unobtrusive preparations for ships to leave UK ports
f) A measure of redistribution of hospital patients and staff
g) Reduction of stocks of medical supplies, food, oil, coal and repair materials in high density areas.”
Regional Commissioner’s Private Office
Regional Commissioner 1
Deputy Regional Commissioner 1
Private Secretary 1
Assistant Private Secretaries 2
Clerical Officers/Secretaries 3
Secretariat
Principal Officer 1
Assistant Secretary 1
Principals 3
Higher Executive Officers 2
Clerical Officers/Secretaries 2
Information Unit
Assistant Secretary 1
Principal/Senior Executive Officer 3
Higher Executive Officer 2
Clerical Officers/Secretaries 1
Combined Operations
Chief Executive Officer (staff off) 2
Higher Executive Officer 2
Scientific Team
Regional Scientific Adviser 1
Other scientists – Operations 1
- Questions 1
- Plotting 2
- Relief 1
Other staff – Executive Officer 2
Clerks 2
Plotters 3
Telephonists 3
Common Services – Clerical and Registry
Higher Executive Officer
(Chief Clerk) 1
Executive Officer 3
Clerical Officers/shorthand typist 12
Duplicating Supervisor 1
Photocopier/duplicator oprs. 10
Draughtsmen/illustrators 2
Signals Office
Regional Comms Officer. 1
Signal Master 2
Signals Officer 2
PBX Operators 15
Teleprinter staff 28
WT/phonogram staff 10
Counter Room 10
Clerical Officer/Sec 1
Cypher clerks 6
Maintenance 4
Camp Commandant
Camp Commandant 1
Clerk 1
Medical Orderly 1
Canteen staff 14
Despatch riders 6
Maintenance staff (MoW) 16
Messengers 20
Home Office
General Duties
Administrative Officer 1
Assistant Admin. Officer 1
Civil Defence
Regional Director 1
Asst Regional Director 1
Others 5
Police
Regional Police Comndr 1
Deputy Reg Pol Comndr 1
Others 8
Fire
Regional Fire Comndr 1
Deputy Reg Fire Comndr 1
Others 8
Clerical Officers/Secretaries 2
Treasury 3
Security Services 3
Admiralty
Regional Controller 1
Support Staff 11
MAFF
Controller 1
Regional Officers 3
Trade Officers 7
Clerical/Executive Offcrs 14
Air Ministry
Air Vice Marshall 1
Support 7
Ministry of Aviation
Director General 1
Product Engineers 3
Clerical Offcrs/Secs 1
Board of Trade
Assistant Secretary 1
Senior Executive Offcr 1
Clerical Officers/Sec 1
BBC
In charge 1
Senr Ops Engineer 1
Operations Engrs 6
Operational output 5
Central Office of Information
Chief Regional Officer 1
Press Officers 2
Clerks 2
Colonial Office none
Commonwealth Relations none
Customs & Excise none
GPO
Regional Director 1
Senior Admin & Specialist Staff 6
Other Specialists 2
Ministry of Health
Assistant Secretary 1
Principal Medical Offcr 1
Medical Officer 1
Ambulance Officer 1
Clerical Officers/Secs 2
Ministry of Housing & Local Government
Administration 12
Professional Staff 4
Cartographers, Clerks 8
Ministry of Labour
Assistant Secretary 1
Chief Executive Officer 2
Clerical 1
National Assistance Board
Regional Controller 1
Senior Executive Offcr 1
Executive Officer 1
Ministry of Pensions & National Insr
Regional Controller 1
HMSO
Printing Technical Officer 1
Ministry of Power
Deputy Secretary 1
Coal
Admin Ofcr 1
Industry 1
Gas and Electricity
Admin Offcrs 1
Ex gas industry 1
Ex electricity industry 2
Petroleum
Admin Offcrs 2
Ex industry 2
Clerical Officers/typists 4
Ministry of Transport
Inland Transport
Admin 2
Specialists 10
Executive/Clerical Offcrs 9
Shipping
Admin 1
Clerical 1
UK Armed Forces
District Commander 1
Others 24
Ministry of Works
Regional Director 1
Maintenance Surveyor 1
CEO 1
Engineer 1
Supplies Officer 1
Clerk 1
To ensure that information sent between headquarters was both concise and comprehensive standard formats for “situation reports” were devised. Two are given here. The first is from the 1960s and shows the headings to be used in a “sitrep” from the RSGs to the Central Government War HQ. The second is a draft from the Standard Operating Instructions for RGHQs drawn up in 1988. It is interesting to see how the 1960s version drawn up based on experience differs from that of the 1988.
Situation report code – Regional Seats of Government to the Central Government
Code letter Heading
A Broad description of scale of attack, damage and fire situation
B Broad description of fall-out situation and public control measures
C Casualties and homeless
D Morale
E Control organisation and communications
F Life saving and other major “operations”
G Reinforcements, special equipment or supplies required
H Essential Service Routes
J Armed Forces
K Transport
L Food
M Health
N Water
P Electricity
R Other Public Utilities
S Industry
T)
U)
V) Spare
W)
Y)
Z Regional Commissioner’s Comments
Part 1 – Immediate Attack Situation
A.1 Details of the attack – scale, location of ground estimated weapon sizes, other forms of attack.
A.2 Damage and fire situation – damage to towns, essential service routes, essential and service installations.
A.3 Extent and effectiveness of life-saving measures
A.4 Fallout situation – broad description of public control zones. Extent and effectiveness of any clearance operations undertaken.
A.5 Areas abandoned.
B.1 Population statistics Apparently able bodied survivors in (a) fallout free and (b) under fallout.
B.2 Homeless in (a) fallout free areas and (b) under fallout.
B.3 Casualties (a) acute injured; (b) radiation sick; and (c) numbers expected to die.
B.4 Dead
Part ll – Control and Communication
C Machinery of government. Extent of damage to Control Organisation and subsequent restoration, re-adjustments to boundaries, responsibilities, etc. Functioning of organisations below regional level.
D.1 Communications. Line and radio communications.
D.2 Postal and courier services.
D.3 Broadcasting
D.4 Press and local information arrangements,
E.1 Public Order. Law and order (to include matters pertaining to the police).
E.2 Administration of justice.
E.3 Morale
F. Monetary Situation
Part lll – General Welfare of Survivors
G.1 Distribution of Surviving population. Movements of population, both unofficial and organised. Registration.
G.2 Housing and billeting matters.
H Water Supplies
J.1 Food. Stocks, ration scales.
J.2 Distribution and feeding arrangements.
K.1 Health. Hospital services.
K.2 Medical supplies, stocks, manufacture, improvisation.
K.3 Public health
L Essential consumer supplies
Part lV – Production, Supplies and Transport
M.1 Transport. Road transport (including road and bridge repairs)
M.2 Railways.
M.3 Ports and shipping.
M.4 Inland waterways.
M.5 Aviation.
N.1 Energy. Petrol, oil and lubricants.
N.2 Electricity production and distribution.
N.3 Gas production and distribution.
N.4 Coal production, stocks and distribution.
P.1 Industry. Essential stocks and manufacturing plant surviving.
P.2 Manpower and allied problems.
P.3 Problems of and priorities for industrial production.
Q Agriculture.
R Building works, repairs and construction.
Part V – Armed Forces
S.1 Royal Navy
S.2 Army
S.3 Royal Air Force
S.4 In support of civil power.
Part Vl – General
T)
U)
V) Spare
W)
X)
Y General situation and special requirements.
Z Any special comments [by the Commissioner]
9. TURNSTILE war cabinet organisation
1. Prime Minister & War Cabinet
Prime Minister 1
Private Secretaries/executive officers 2
Clerical officers/typists 4
Other Ministers of War Cabinet Rank 5
Personal staff 10
2. Chief of Defence Staff & Staff
Chief of the defence Staff 1
Deputy Chief of the Defence Staff 1
Staff Officers 6
Clerical officers/typists 4
3. Civil Secretariat
Secretary to Cabinet 1
Private Secretary, Assistant Secretary, etc 4
Clerical staff 3
4. Military Secretariat
Staff Officers 8
Clerical staff 5
5. Ministry of Defence 23
6. Joint Planning Staff 9
7. Joint Intelligence Committee
Secretariat 6
Senior representative (MI5, etc) 8
Intelligence staff 39
8. Combined Registry & Committee & Distributions Sections
Clerical staff 15
9. War Cabinet Signal Registry
Clerical Staff 5
10, Typing Pools 15
11. Prime Minister’s Map Room 32
Grand total 210