Continuity of government (COG) is the principle of establishing defined procedures that allow a government to continue its essential operations in case of a catastrophic event such as nuclear war.
During and after the Cold War countries developed such plans to avoid (or minimize) confusion and disorder due to a power vacuum in the aftermath of a nuclear attack.
During the years following the federation of Australia in 1901, several locations were considered for the national capital. One of the criteria used to assess sites was that they needed to be inland so that they could not be attacked from the sea. It was also believed that locations away from the coast would have a lower incidence of disease.[1] During the Cold War the Office of National Assessments believed that it was unlikely that Australian cities would be attacked by the Soviet Union during a nuclear war.[2]
The modern Australian Government has plans to enable the continuity of government. As of 2008, these formed part of 'Plan Mercator', which the government has described as aiming "to minimise the impact of a national security emergency on critical government operations and provide for the rapid resumption of 'near normal' government business under alternate arrangements until normal operations can be resumed".[3]
Under the Australian system of government, there is not necessarily a requirement to maintain the Cabinet in a crisis. If the Prime Minister was killed in a disaster, the Governor-General would need to appoint their successor. A national unity government could also be formed in a major crisis.[4]
A range of legislation, including the Defence Act 1903 and several health bills, include provisions that can be activated in response to emergencies. There are also plans for the Parliament of Australia to operate from another location if it is unable to sit at Parliament House in Canberra. These plans are classified.[4]
The Canberra Times has reported that an Australian Government building in the Canberra suburb of Symonston houses communications systems that would be used to support the continuity of government if Plan Mercator was activated. The building was completed in 2007, and its secret function was disclosed as part of a job advertisement in 2008.[3]
In response to the COVID-19 pandemic, the federal and most of the state and territory parliaments cancelled scheduled sittings from March 2020.[5] Federal parliamentary committees continued to operate virtually. The federal parliament met with only the number of members necessary to form a quorum present on several occasions between March and June 2020, and resumed full sittings from August that year. The arrangements in place from August allowed members of parliament who were unable to travel to Canberra to participate virtually, but these members were unable to vote in proceedings.[6][7]
Prime Minister Scott Morrison arranged to be secretly appointed to hold several ministerial positions during 2020 and 2021, justifying his appointment as the Minister for Finance and Minister for Health as being necessary in case the ministers for portfolios were affected by COVID-19 and unable to perform their duties.[8] Morrison's appointment as Minister for Health was approved in March 2020 by the National Security Committee of Cabinet as part of measures taken in response to the pandemic, but was not publicly announced. His subsequent appointment to the other ministries was not known to other members of the government.[9] An inquiry held into the matter during 2022 that was headed by Former High Court justice Virginia Bell found that Morrison had not needed to hold these ministries, as he could have been appointed "in a matter of minutes" if the ministers had been incapacitated. Morrison did not use the powers available to him as Finance or Health minister.[8]
The K-116 facility under Zlíchov hill in western Prague was designated to house the Czechoslovak government in case of nuclear attack (together with the K-9 facility in Jihlava) and might still be used as the emergency headquarters of the Czech government and military.[11]
Denmark
During the Cold War, Denmark built two bunker complexes, named REGAN Vest and REGAN Øst (Danish: "REGeringsANlæg", translated: "Government Complex West and Government Complex East"), in Jutland and Zealand respectively. The idea was to have half of the government and the royal family in one bunker, and the other half in the other, allowing continuity of government, even if one of the bunkers were destroyed or cut off.
Germany operated a government bunker (Regierungsbunker) to house the German government, parliament and all federal personnel needed to keep the government working in the event of war or severe crisis. It was decommissioned in 1997.
Republic of Ireland
In Ireland, the National Security Committee (NSC) is the conduit for officials to communicate with the Taoiseach (Prime Minister) and/or cabinet members if the normal channel of communication with their minister became unavailable. Drafts of emergency powers legislation have been drawn up in secret, including legislation to deal with circumstances such as an attack on cabinet involving numerous deaths.[12]
During the period of the Cold War, it was envisaged that cabinet ministers, senior civil servants and military advisers would use an underground nuclear bunker at Custume Barracks in Athlone in the event of a nuclear exchange. The bunker was equipped with a command and control centre with communications equipment – which had a hotline to the British government in Whitehall – a map room pointing out important areas for protection, kitchen, bedroom and bathroom facilities.[13][14]
Israel
As of December 2003 an underground national crisis management center was being constructed at an undisclosed location in the Judaean Mountains under Jerusalem.[15][16] Another command and control bunker is being built as part of the new Prime Minister's Office complex in Givat Ram.[17]
Poland
According to Constitution of Poland in case of death or inability to discharging duties of the President, his duties are discharged by Marshal of the Sejm (or if they are unable, the Marshal of the Senate).
After Smolensk air disaster in 2010 a lot of the highest state and army offices were emptied. Their duties were automatically taken over by respective deputies.
New Zealand
The New Zealand government believes the most likely disaster scenario to affect the government is a large earthquake in Wellington. The government has plans to move Parliament and essential staff to Devonport Naval Base in Auckland if such an event occurs.[18]
The website of the Governor-General of New Zealand notes that their constitutional role is to "maintain the legitimacy and continuity of government by ensuring there is always a government in office with a democratic mandate to govern".[19]
The New Zealand National Crisis Management Centre is located under the "Beehive" building in Wellington. An Alternate National Crisis Management Centre is in Auckland, and would be activated if the facility in Wellington was damaged, if multiple crises were occurring or if the government is required to relocate to Auckland.[20]
Norway
The Norwegian government operates a nuclear bunker called Sentralanlegget in Buskerud County. The bunker is meant to accommodate the Norwegian royal family and the government in case of a nuclear/military attack on the nation, and also function as a wartime headquarters. There is also a bunker beneath Høyblokka in downtown Oslo.
Soviet Union and Russia
Map of the Metro-2 system as supposed by the United States military intelligence in 1991.
In the public domain very little is known about Russia's COG plans. One sprawling underground facility residing in tunnels cut into Mount Yamantau is likely to be related to the survival of Russia's government, given its size and decades long construction history, with a construction start during the rule of Leonid Brezhnev (1964–82).[22]KGB defector Colonel Oleg Gordievsky states that an organization, known as Directorate 15, was (or is) tasked with building and maintaining a network of hundreds of underground command bunkers for the Soviet leadership; this includes the vast site beneath Yamantau Mountain, which is often called Mezhgorye / Межго́рье after the closed city that is located nearby. However, there is speculation, due to its proximity to Chelyabinsk-70, that Yamantau is a 400-square-mile underground complex which houses nuclear warheads, missiles, launch controls, and several nuclear weapons factories designed to continue production after a hypothetical nuclear war begins.[23]
The second command and control center in the Urals, after Yamantau, is similarly speculated to be underground and located near, or under, Kosvinsky Kamen. The site is believed to host the Russian Strategic Rocket Forces alternate command post, a post for the general staff built to compensate for the vulnerability of older Soviet era command posts in the Moscow region. In spite of this, the primary command posts for the Strategic Rocket Forces remains Kuntsevo in Moscow and the secondary is the Kosvinsky Mountain in the Urals.[24] The facility at Kosvinsky, finished in early 1996, was designed to resist US earth-penetrating warheads and serves a similar role as the American Cheyenne Mountain Complex.[23]
Further command centers, according to globalsecurity.org, include one near Chekhov, which is the Russian General Staff wartime command post, buried deep underground,[25] and Sharapovo(ru) about 80 kilometres (50mi) south of Moscow, built in the 1950s, Sharapovo is believed to have been the primary backup command center for the Soviet era leadership. Both Chekhov and Sharapovo are each suggested to have the capability to accommodate about 30,000 individuals,[23] As an alternative to Sharapovo, a secondary political leadership base is located at Chaadayevka, some 650 kilometers southeast of Moscow near the city of Penza.[26]
There is also said to be as many as 12 underground levels beneath the Russian capital of Moscow to protect the government in the Kremlin, known as the Main Directorate of special programs of the President (Glavnoye Upravlenie Specialnih Program: GUSP) (ru) the direct successor of the 15th Directorate of the KGB, which was established in 1977, GUSP is said to oversee, amongst other sites, a parallel track line alongside the Moscow metro, known as the 'Kremlin line' Metro-2 or D-6 to be used in an emergency.[27] Two destinations of this system are suggested to be the old KGB headquarters, now the FSB headquarters, at Lubyanka Square, and the second being regarded as an enormous underground leadership bunker adjacent to Moscow State University.[21] Another alleged subterranean destination, apart from the aforementioned underground town at Ramenki/Moscow State University is Vnukovo-2 airport.[28] Despite official Russian state ambiguity, it is speculated that many of the Moscow bunkers are linked by an underground railway line.[23]
Sweden
In case of war, the Riksdag can convene somewhere else than in the capital, and if necessary, a War Delegation will replace the Riksdag. The War Delegation consists of the Speaker and 50 members of the Riksdag. The government can put a number of enabling acts in force to regulate for example rationing, export and seizing of property.[29][30] If the government is unable to carry out its duties the Riksdag may decide on the formation of a new government. Likewise, if the Riksdag and the War Delegation are unable to carry out its duties, the government can assume the powers of the Riksdag, but with some limitations.[31]
During the Cold War, the Klara skyddsrum ("Klara shelter" or "Klara bunker") was built underneath Stockholm. The bunker is designed to accommodate two thirds of the government and between 8,000 and 12,000 civilians in the case of a military attack on Stockholm. It is designed as a very large, two-story oval, with multiple entrances. During peacetime, parts of it are used as a parking garage. Sweden built over 65,000 fallout shelters[32] in regular houses, and every county had at least one large hard-rock underground bunker that controlled a number of smaller bunkers that were located in the municipalities.[33]
Turkey
There is little public knowledge about continuity of government in Turkey. The cabinet and presidential offices, based in the capital of Ankara, have secondary sites in Istanbul and İzmir.
Continuity of the national government was first threatened in late 1776, when British forces advanced toward the Continental capital at Philadelphia. On December 9, the Continental Congress passed a resolution in anticipation of a British capture:
Resolved: That in case this Congress shall be under the necessity of removing from Philadelphia, it shall be adjourned to Baltimore.
The Congress was adjourned as planned three days later.[34] Other relocations followed during the course of the Revolutionary War.
For most of its existence, the United States operated without a standing continuity plan. When British forces burned Washington in 1814, Secretary of State James Monroe received only a few hours' notice to remove the government records. Although his staff saved many valuable records, much was nonetheless destroyed, and the next administration encountered a great deal of confusion.[35]
In 1952, President Truman ordered all federal offices to develop their own continuity plans for the event of a civil defense emergency. Plans have been maintained and adapted since then, at times requiring the construction of secret facilities such as the emergency Congress facility in Greenbrier County, West Virginia. The current continuity policy is defined in National Security Policy Directive 51[36] and its implementation plan.[37] The continuity plan was activated for the first time during the September 11, 2001 attacks and then again during the January 6 United States Capitol attack.[38][39]Presidential Emergency Action Documents (PEADs) are draft classified executive orders, proclamations, and messages to Congress that are prepared for the President of the United States to exercise or expand powers in anticipation of a range of emergency hypothetical worst-case scenarios, so that they are ready to sign and put into effect the moment one of those scenarios comes to pass.
The United States presidential line of succession is the order in which officials of the United States federal government assume the powers and duties of the office of president of the United States if the incumbent president becomes incapacitated, dies, resigns, or is removed from office. It was adopted in 1947, and last revised in 2006. The designated survivor is an individual in the line of succession, chosen to stay away from events such as State of the Union addresses and presidential inaugurations.
Data embassy, a set of servers that store one country's data in another country to ensure a country's digital continuity with particular respect to critical databases
A fallout shelter is an enclosed space specially designated to protect occupants from radioactive debris or fallout resulting from a nuclear explosion. Many such shelters were constructed as civil defense measures during the Cold War.
Continuity of Operations (COOP) is a United States federal government initiative, required by U.S. Presidential Policy Directive 40 (PPD-40), to ensure that agencies are able to continue performance of essential functions under a broad range of circumstances. PPD-40 specifies certain requirements for continuity plan development, including the requirement that all federal executive branch departments and agencies develop an integrated, overlapping continuity capability, that supports the eight National Essential Functions described in the document.
The Mount Weather Emergency Operations Center is a government command facility located near Frogtown, Clarke County, Virginia, used as the center of operations for the Federal Emergency Management Agency (FEMA). Also known as the High Point Special Facility (HPSF), its preferred designation since 1991 is "SF".
A number of military citadels are known to have been constructed underground in central London, dating mostly from the Second World War and the Cold War. Unlike traditional above-ground citadels, these sites are primarily secure centres for defence coordination.
Emergency Government Headquarters is the name given for a system of nuclear fallout shelters built by the Government of Canada in the 1950s and 1960s as part of continuity of government planning at the height of the Cold War. Situated at strategic locations across the country, the largest of these shelters are popularly referred to as "Diefenbunkers", a nickname coined by federal opposition politicians during the early 1960s. The nickname was derived from the last name of the Prime Minister of the day, John Diefenbaker, who authorized their construction. Over fifty facilities were built along several designs for various classes of service.
The Diefenbunker, formerly known by its military designation, Canadian Forces Station Carp (CFS Carp), is a large underground four-storey reinforced concrete bunker and nuclear fallout shelter located in the rural area of Carp, Ontario approximately 30 km (19 mi) west of downtown Ottawa. Between 1957 and 1961, during the Cold War the Government of Canada led by then Prime Minister John Diefenbaker authorized the Diefenbunker to be designed and built as the Central Emergency Government Headquarters (CEGHQ Carp) in an attempt to ensure the continuity of government subsequent to a nuclear weapons attack by the Soviet Union. In 1994, CFS Carp was decommissioned and closed.
Metro-2 is the informal designation for a clandestine and officially unacknowledged deep underground metro system in the Moscow metropolitan area. It was designed to provide the Soviet leadership with secure wartime evacuation routes, communication hubs, and command posts, including a dedicated bunker for the national command authority. One such bunker is located beneath the Kremlin.
The National Military Command Center (NMCC) is a Pentagon command and communications center for the National Command Authority. Maintained by the Department of the Air Force as the "DoD Executive Agent" for NMCC logistical, budgetary, facility, and systems support; the NMCC operators are in the Joint Staff's J-3 (Operations) Directorate. "The NMCC is responsible for generating Emergency Action Messages (EAMs) to missile launch control centers, nuclear submarines, recon aircraft, and battlefield commanders".
The Central Government War Headquarters (CGWHQ) is a 35-acre (14 ha) complex built 120 feet (37 m) underground as the United Kingdom's emergency government war headquarters – the hub of the country's alternative seat of power outside London during a nuclear war or conflict with the Soviet Union. It is in Corsham, Wiltshire, in a former Bath stone quarry known as Spring Quarry, under the present-day MoD Corsham. In 1940, during the Second World War, the site was acquired by the Minister of Aircraft Production and used as an underground engine factory. The war headquarters was commissioned in 1955, after approval by Prime Minister Anthony Eden. However, it became outdated shortly after it was built, due to intercontinental ballistic missiles being able to target it, and the formulation of other plans. Nevertheless, the complex continued to have a role in war plans and remained in operation for 30 years.
The Raven Rock Mountain Complex (RRMC), also known as Site R, is a U.S. military installation with an underground nuclear bunker near Blue Ridge Summit, Pennsylvania, at Raven Rock Mountain that has been called an "underground Pentagon". The bunker has emergency operations centers for the United States Army, Navy, Air Force, and Marine Corps. Along with Mount Weather Emergency Operations Center in Virginia and the Cheyenne Mountain Complex in Colorado, it formed the core bunker complexes for the US continuity of government plan during the Cold War to survive a nuclear attack.
Regional seats of government or RSGs were the best known aspect of Britain's civil defence preparations against nuclear war. In fact, however, naming conventions changed over the years as strategies in Whitehall changed.
The Kelvedon Hatch Secret Nuclear Bunker at Kelvedon Hatch, in the Borough of Brentwood in the English county of Essex, is a large underground bunker maintained during the Cold War as a potential regional government headquarters. Since being decommissioned in 1992, the bunker has been open to the public as a tourist attraction, with a museum focusing on its Cold War history.
Dead Hand, also known as Perimeter, is a Cold War–era automatic or semi-automatic nuclear weapons control system that was constructed by the Soviet Union. The system remains in use in the post-Soviet Russian Federation. An example of fail-deadly and mutual assured destruction deterrence, it can initiate the launch of the Russian intercontinental ballistic missiles (ICBMs) by sending a pre-entered highest-authority order from the General Staff of the Armed Forces, Strategic Missile Force Management to command posts and individual silos if a nuclear strike is detected by seismic, light, radioactivity, and pressure sensors even with the commanding elements fully destroyed. By most accounts, it is normally switched off and is supposed to be activated during times of crisis; however, as of 2009, it was said to remain fully functional and able to serve its purpose when needed. Accounts differ on whether the system, once activated by the country's leadership, will launch missiles fully automatic or if there is still a human approval process involved, with newer sources suggesting the latter.
The Cold War Museum (Moscow) or Bunker GO-42, also known as "facility-02" (1947), CHZ-293 (1951), CHZ-572 (1953), and GO-42 (from 1980), and now Exhibition Complex Bunker-42, is a once-secret military complex, bunker, communication center in Moscow, Russia, near the underground Moscow Metro station Taganskaya. It has an area of 7,000 square metres (75,000 sq ft) and is situated at a depth of 65 metres (213 ft) below ground.
The National Program Office (NPO) was an office of the United States Government, established to ensure continuity of government in the event of a national disaster. The NPO was established by a secret executive order signed on 14 September 1982 by President Ronald Reagan during the Cold War in preparation for a nuclear war, presumably with the Soviet Union.
The Government Bunker(Regierungsbunker) in Germany, officially named Ausweichsitz der Verfassungsorgane des Bundes im Krisen- und Verteidigungsfall zur Wahrung von deren Funktionstüchtigkeit (AdVB), in English: "Emergency Seat of the Federal Constitutional Organs for the State of Crisis or State of Defence to Maintain their Ability to Function" was a massive underground complex built during the Cold War era to house the German government, parliament and enough federal personnel needed to keep the government working in the event of war or severe crisis. Located only about 25 kilometres (16 mi) south of Bonn, Germany, in the Ahr Valley between the towns of Ahrweiler and Dernau, it was one of the best kept secrets of West Germany. It was built between 1960 and 1972 inside two abandoned railway tunnels that were built as part of the Strategic Railway, maintained and kept in a working condition for about 30 years and decommissioned in 1997. A small part of the once-secret site is now open to the public as Government Bunker Documentation Site, while the vast majority is abandoned and sealed.
The Wartime Broadcasting Service is a service of the BBC that is intended to broadcast in the United Kingdom either after a nuclear attack or if conventional bombing destroyed regular BBC facilities in a conventional war. It is unclear if the Wartime Broadcasting Service is still operational as plans are kept mainly secret with the BBC and government officials. According to an article by the BBC, recordings of a nuclear attack warning are still re-recorded and kept up to date periodically.
Post-Attack Command and Control System Facility, Hadley is a defunct Post-Attack Command and Control System facility that operated from June 2, 1958 until 1970. It is located on and under Bare Mountain in Hadley, Massachusetts. The facility was known by many different names: 8th Air Force Combat Operations Center (COC), "The Notch", and "Westover Communications Annex" since it was related to nearby Westover Air Force Base, and nicknamed The Bunker.
Custume Barracks is a military installation at Athlone in Ireland.
Python was a Cold War contingency plan of the British Government for the continuity of government in the event of nuclear war.
↑ Mulqueen, Michael (2009). Re-Evaluating Irish National Security Policy: Affordable Threats?. Manchester: Manchester University Press. ISBN978-0-7190-8027-2.
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