Civil Defense in the Cold War: The Forgotten History

On 29 August 1949, the Soviet Union successfully tested its first nuclear weapon. Over the next year and a half, U.S. President Harry S. Truman resurrected the Office of Civilian Defense (which had been abolished at the end of World War II) and signed into law the Federal Civil Defense Act of 1950, which mobilized government agencies to plan for the aftermath of a global nuclear war. With the Cold War underway, that act kicked off a decades-long effort to ensure that at least some Americans survived nuclear armageddon.

As the largest civilian federal agency with a presence throughout the country, the U.S. Post Office Department was in a unique position to monitor local radiation levels and shelter residents. By the end of 1964, approximately 1,500 postal buildings had been designated as fallout shelters, providing space and emergency supplies for 1.3 million people. Occupants were expected to remain in the shelters until the radioactivity outside was deemed safe. By 1968, about 6,000 postal employees had been trained to use radiological equipment, such as the CD V-700 pictured at top, to monitor beta and gamma radiation. And a group of postal employees organized a volunteer ham radio network to help with communications should the regular networks go down.

What was civil defense in the Cold War?

The basic premise of civil defense was that many people would die immediately in cities directly targeted by nuclear attacks. (Check out Alex Wellerstein’s interactive Nukemap for an estimate of casualties and impact should your hometown—or any location of your choosing—be hit.) It was the residents of other cities, suburbs, and rural communities outside the blast area that would most benefit from civil defense preparations. With enough warning, they could shelter in a shielded site and wait for the worst of the fallout to decay. Anywhere from a day or two to a few weeks after the attack, they could emerge and aid any survivors in the harder-hit areas.

In 1957, a committee of the Office of Defense Mobilization drafted the report Deterrence and Survival in the Nuclear Age, for President Dwight D. Eisenhower. Better known as the Gaither Report, it called for the creation of a nationwide network of fallout shelters to protect civilians. Government publications such as The Family Fallout Shelter encouraged Americans who had the space, the resources, and the will to construct shelters for their homes. City dwellers in apartment buildings warranted only half a page in the booklet, with the suggestion to head to the basement and cooperate with other residents.

  This model fallout shelter from 1960 was designed for four to six people. Bettmann/Getty Images

Ultimately, very few homeowners actually built a fallout shelter. But Rod Serling, creator of the television series “The Twilight Zone,” saw an opportunity for pointed social commentary. Aired in the fall of 1961, the episode “The Shelter” showed how quickly civilization (epitomized by a suburban middle-class family and their friends) broke down over decisions about who would be saved and who would not.

Meanwhile, President John F. Kennedy had started to shift the national strategy from individual shelters to community shelters. At his instruction, the U.S. Army Corps of Engineers began surveying existing buildings suitable for public shelters. Post offices, especially ones with basements capable of housing at least 50 people, were a natural fit.

Each postmaster general was designated as the local shelter manager and granted complete authority to operate the shelter, including determining who would be admitted or excluded. The Handbook for Fallout Shelter Management gave guidance for everything from sleeping arrangements to sanitation standards. Shelters were stocked with food and water, medicine, and, of course, radiological survey instruments.

What to do in case of a nuclear attack

These community fallout shelters were issued a standard kit for radiation detection. The kit came in a cardboard box that contained two radiation monitors, the CD V-700 (a Geiger counter, pictured at top) and the CD V-715 (a simple ion chamber survey meter); two cigar-size CD V-742 dosimeters, to measure a person’s total exposure while wearing the device; and a charger for the dosimeters. Also included was the Handbook for Radiological Monitors, which provided instructions on how to use the equipment and report the results.

  Post office fallout shelters were issued standard kits for measuring radioactivity after a nuclear attack.National Postal Museum/Smithsonian Institution

  The shelter radiation kit included two radiation monitors, two cigar-size dosimeters, and a charger for the dosimeters. Photoquest/Getty Images

In the event of an attack, the operator would take readings with the CD V-715 at selected locations in the shelter. Then, within three minutes of finishing the indoor measurements, he would go outside and take a reading at least 25 feet (7.6 meters) from the building. If the radiation level outside was high, there were procedures for decontamination upon returning to the shelter. The “protection factor” of the shelter was calculated by dividing the outside reading by the inside reading. (Today the Federal Emergency Management Agency, FEMA, recommends a PF of at least 40 for a fallout shelter.) Operators were directed to retake the measurements and recalculate the protective factor at least once every 24 hours, or more frequently if the radiation levels changed rapidly.

The CD V-700 was intended for detecting beta and gamma radiation during cleanup and decontamination operations, and also for detecting any radioactive contamination of food, water, and personnel.

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Each station would report their dose rates to a regional control center, so that the civil defense organization could determine when people could leave their shelter, where they could go, what routes to take, and what facilities needed decontamination. But if you’ve lived through a natural or manmade disaster, you’ll know that in the immediate aftermath, communications don’t always work so well. Indeed, the Handbook for Radiological Monitors acknowledged that a nuclear attack might disrupt communications. Luckily, the U.S. Post Office Department had a backup plan.

In May 1958, Postmaster General Arthur E. Summerfield made an appeal to all postal employees who happened to be licensed amateur radio operators, to form an informal network that would provide emergency communications in the event of the collapse of telephone and telegraph networks and commercial broadcasting. The result was Post Office Net (PON), a voluntary group of ham radio operators; by 1962, about 1,500 postal employees in 43 states had signed on. That year, PON was opened up to nonemployees who had the necessary license.

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Although PON was never activated due to a nuclear threat, it did transmit messages during other emergencies. For example, in January 1967, after an epic blizzard blanketed Illinois and Michigan with heavy snow, the Michigan PON went into action, setting up liaisons with county weather services and relaying emergency requests, such as rescuing people stranded in vehicles on Interstate 94.

  A 1954 civil defense fair featured a display of amateur radios. The U.S. Post Office recruited about 1,500 employees to operate a ham radio network in the event that regular communications went down. National Archives

The post office retired the network on 30 June 1974 as part of its shift away from civil defense preparedness. (A volunteer civil emergency-response ham radio network still exists, under the auspices of the American Radio Relay League.) And by 1977, laboratory tests indicated that most of the food and medicine stockpiled in post office basements was no longer fit for human consumption. In 1972 the Office of Civil Defense was replaced by the Defense Civil Preparedness Agency, which was eventually folded into FEMA. And with the end of the Cold War, the civil defense program officially ended in 1994, fortunately without ever being needed for a nuclear attack.

Do we still need civil defense?

The idea for this column came to me last fall, when I was doing research at the Linda Hall Library, in Kansas City, Mo., and I kept coming across articles about civil defense in magazines and journals from the 1950s and ’60s. I knew that the Smithsonian’s National Postal Museum, in Washington, D.C., had several civil defense artifacts (including the CD V-700 and a great “In Time of Emergency” public service announcement record album).

As a child of the late Cold War, I remember being worried by the prospect of nuclear war. But then the Cold War ended, and so did my fears. I envisioned this month’s column capturing the intriguing history of civil defense and the earnest preparations of the era. That chapter of history, I assumed, was closed.

Little did I imagine that by the time I began to write this, the prospect of a nuclear attack, if not an all-out war, would suddenly become much more real. These days, I understand the complexities and nuances of nuclear weapons much better than when I was a child. But I’m just as concerned that a nuclear conflict is imminent. Here’s hoping that history repeats itself, and it does not come to that.

Part of a continuing series looking at historical artifacts that embrace the boundless potential of technology.

An abridged version of this article appears in the August 2025 print issue.