Transition To War

"I have spoken to Mr Mitchell who tells me that No. 10 have no War Book of their own and are not aware of any obligation to inform the Palace."

W. I McIndoe, Private Secretary to the Cabinet Secretary, Sir Burke Trende, to Commander J. R. Stephens RN, Cabinet Office Secretariat. 22nd Feb. 1965.

Transition to War (TTW) is a North Atlantic Treaty Organisation (NATO) military term referring to a period of international tension during which government and society move to an open (but not necessarily declared) war footing.

In the UK the procedures and related matters are detailed in the Government War Book it comprises three parts reflecting pre-Precautionary Stage matters, the Precautionary Stage, and War. The War Book specifies the actions to be taken by ministers and officials in each of these periods. These might be: immediate and vital security measures which require decision at the earliest possible moment when there is a threat of war; institution of the Precautionary Stage and the principal measures which would automatically be brought into operation during the course of that Stage; measures which require separate Cabinet decisions during the Precautionary Stage; and measures required with the onset of war.

In addition to the Government War Book each Department of State maintains a departmental war book, War Books are also maintained by national utilities and services.

In the UK it is the Monarch who formally announces that a state of war exists.

The period after this is considered to be war, conventional or otherwise, but the term TTW found its origins in the peak of the Cold War as a key NATO Term. This could include the suspension of peacetime services, closing motorways to all but military traffic and the internment of subversives without charge or trial.

The legislation that facilitates the transition to war is pre-drafted and has been in existence since the 1939, when World War II required certain legislation to be passed to prosecute the war effectively. Primarily this was the Emergency Powers Act 1939 and Defence Regulation 18B, which allowed the detention of subversives without charge or trial. A number of these emergency regulations lasted until the 1950s, and were finally abolished in 1954.

Cold War

The Cold War brought the possibility of war with the Soviet Union, which would require similar legislation to allow NATO countries to defend themselves effectively.

In the UK the whole procedure of transition is described in some detail in 'The War Book', copies of which are held by key persons (including HM Queen Elizabeth II), government departments and the military. Pre-drafted legislation governing every aspect of life in the United Kingdom, consisting of the Emergency Powers (Defence) Bill, Defence (Machinery of Government) Regulations and other laws were devised. Other regulations included:
 Other existing legislation governing everyday matters already allows for special provisions in a national emergency. For example:
 The Activation Announcement for the UKWMO, ROC, and until 1968 the Civil Defence Corps, Auxiliary Fire Service, Women's Voluntary Service/Women's Royal Voluntary Service and the National Hospital Service Reserve would have been broadcast by all radio stations. Pre-1968 it was envisioned that the civil defence organisations  would have received standby warnings as early as possible. In the case of the Civil Defence Corps it was the responsibility of section officers to pass on information to their subordinate level of command, and this would be passed down the chain.

Upon declaration of war, or in the event of a surprise attack, all television stations would close down, all commercial radio stations would close and the BBC would transition to the Wartime Broadcasting Service.

Wartime administration

During the Cold War there were several plans for the administration of the country in the event of WWIII. The first comprised a restructuring of the Civil Defence Regions that had existed since 1939, with the UK being divided into eleven regions, each with an HQ. Construction of these started started in 1953 and was completed by 1965. The HQ sites chosen were:
 Long before these buildings been completed, in fact within just a very few years of commencement, the Government realised that the system and its buildings were inadequate, and therefore a new programme was started. Each of the HQs would each only be manned by a team of 45. The Government came to accept that a fully centralised system would not be able to function in the case of a nuclear attack. This revelation occurred only three years after the start on the previous system, In 1956 the Home Office issued a specification for a vastly expanded network of bunkers, known as Regional Seats of Government (RSGs), each with space for 300 staff, capable of resisting a near miss, linked into communications systems such as the BBC, and capable of operating for several months. Only a year later the first of a series of financial crises hit and the plans were cut back. In particular, rather than building new RSGs , existing facilities, were modified, with none of the purpose built RSGs being purpose-built. This spirit of economy was to mark all UK preparations for nuclear war. They were completed between 1958 and 1961, and the construction was done in complete secrecy, with Parliament, as well as the public and the press, unaware of the work being carried out.

The regional seats of government were:
 Below the RSGs would be another series of bunkers called Sub-Regional Controls, with several per civil defence region. By 1962 the Home Office planned 29 of these, a massive increase from the 19 originally planned. Use of the following extant buildings was proposed:

Due to repeated cutbacks many of these plans never came to fruition, and plans changed time and time again, by the time of the demise of the Civil Defence Corps in 1968 the structure was along the following lines:

Again, within just a few years, more cutbacks resulted in much of the foregoing being reduced to a care and maintenance basis, and when Margaret Thatcher came to power, in 1978, everything changed again. Now a structure of  Regional Government Headquarters (RGHQs) was planned. This would have meant upgrading existing RSGs, and building a number of new ones, of which three were completed. These had only been completed by the end of the 1980s.

During TTW the UK Government would have been dispersed, and key control would have gone underground at the Central Government War Headquarters (CGWHQ), situated close to Corsham in Wiltshire. Development of this site started in the early 1950s.  The site had various codenames throughout the Cold War: Subterfuge, Stockwell, Burlington, Turnstile, Chanticleer,  and Peripheral. At the end of the cold war the CGWHQ was mothballed, and eventually shut down. Evacuation exercises for government departments were held on a regular basis, and similar exercises even continue today to undisclosed destinations.

The following table lists some of what would be likely in the Transition To War, based on the details given in published 'War Books'. The sequence and detail would doubtless vary.
Example Reasons Notes
Closure of schools, colleges and universities.
  • Reduce civilian casualties, allow teachers and other staff in reserve forces to mobilise.
  • To free up buildings for emergency use.
  • To allow members of the Royal Observer Corps, UKWMO, Civil Defence Corps, NHSR and AFS to mobilise.
 Could be problematic in certain areas, especially in garrison and naval towns, or during the examination season.
Hospitals cleared. Make room for casualties from the front line and allow reservists* to mobilise. Hospitals, the fire brigade and other emergency services could be overstretched after attack, if they still existed. Fewer medical staff due to mobilisation.
Motorways and other major roads, plus railways closed to civilian traffic. Facilitate movement of troops. food, fuel, ammunition, weapons and other essential supplies. Motorways and rail network could have people trying to get away from target areas.. Some railway lines, depots, junctions and roads could be specific targets.
Normal television and radio programmes suspended (or programmes cancelled, changed or interrupted). E.g. weather forecasts are suspended. All broadcasting would come under the Wartime Broadcasting Service. All local and commercial stations suspended. To warn of attack, give official information and free up labour for war effort. Protect and Survive information films might be broadcast. In the case of weather forecasts this could also be to prevent spies and terrorists getting information on when to attack. Could be detrimental to morale if a popular show were pulled. Protect & Survive and other public information films could backfire and cause people to switch off official broadcasts. The Government also has powers to take control of the BBC in an emergency under the BBC Charter and the Broadcasting Act 1980.
Non-essential telephone lines disconnected, the Government Telephone Preference Scheme activated. Cellular telephone networks shut down. Increased demand from government and other agencies overwhelm network. Could be unpopular with public because of people losing business, or not being able to contact relatives.
Known and potential subversives interned without charge or trial. Some civil rights suspended as a result of passing of an Emergency Powers Act. To prevent sabotage, mutiny and allow prosecution of the war. The KGB trained agents in the UK in sabotage, and distributed literature for this purpose in the 1950s. Could be used to crack down on civil liberties and stifle dissent in a dictatorship. Civil liberties groups would be very critical of such a decision, as it would stifle opposition.
This legislation is already pre-drafted in three stages and could be imposed by an Order in Council, without Parliament's consent.
Restrictions on the use of electricity for advertising and display. Government orders sports venues, theatres, art galleries, museums and certain other premises closed. Reduced detection by enemy bombers, reducing targeting opportunities. Could also be done to provide electricity for the war effort. This would also reduce civilian casualties and provide emergency premises for detention camps, field hospitals and other similar purposes. Many such buildings are already listed in Government and local authority plans.
Government commandeers commercial and private aircraft, ferries other shipping and the Channel Tunnel. Normal rail services are suspended and trains commandeered, buses and coaches requisitioned. To get soldiers and equipment to the front line and evacuate families of servicemen. Railways could be used to transport civilian needs as well as heavy artillery and tanks for example. Buses could be used as ambulances and troop carriers. Will leave passengers stranded and could lead to food shortages. Businesses could lose trade as a result. Ports and airports might be closed to civilian flights or shipping, either as possible targets or due to military aircraft being stationed there. The Railways Act 1976 allows the Secretary of State to take control of railways in a national emergency, including war.
General mobilisation of armed forces, reservists called up to fight, and civil defence personnel activated. Absenteeism in many companies and workplaces. Some due to transport issues, others may wish to leave target areas. Conscription to work battalions of mechanics, cargo handlers etc. Government may impose manpower controls and industrial conscription, though this might be difficult to enforce. Some people may be in reserved occupations, e.g. farmers, government employees or contractors. Others could be assigned to a work detail to help war effort.
Gas, electricity and water supplies disconnected. Petrol and diesel supplies rationed.
  • Prevent sabotage.
  • Divert supplies to war effort as well as civil authorities.
  • Prevent fires, water supplies being poisoned, and damage to distribution networks.
  • Ensure supply and distribution.
 Could be a reason for dissent, especially if war came in winter. More likely that petrol stations would be closed by the simple method of taking the keys and throwing the master switch.
Police leave cancelled. To enforce emergency laws, guard points from Buckingham Palace down to local petrol stations from sabotage and terrorist attacks, help in the roundup of subversives. Special constables may be used as well, this could lead to staff shortages and absenteeism.
Press reporting restrictions imposed, together with postal censorship.
  • To control the flow and content of information, so that spies do not intercept important intelligence.
  • Keep up morale on home front, as casualty reports might be detrimental to campaign's public support.
  • So that information gets through clearly.
Foreign journalists could be expelled as possible enemy spies or propogandists.
Fire appliances and ambulances deployed outside of towns and cities. To prevent loss of appliances and crews in the event of an attack. Could leave areas vulnerable to terrorist attack, or in the event of a conventional one, could effectively leave areas with no emergency cover.
Borders, ports and airports closed to the public. Airports and ports are potential targets. They might also be commandeered to get the troops to the front line or evacuate foreign nationals. Refugees arriving in ports could be a cover for special forces to infiltrate. The Republic of  Ireland would also have a refugee problem across the land border.
Noted artworks taken into storage.
  • To prevent looting.
  • To prevent the loss of artworks as the result of attack.
  • To censor artworks that could be seen as enemy propaganda, even if their artistic merit is notable.
 This would free up buildings for such purposes as feeding stations, detention camps, accommodation for work details, emergency hospitals and the like.
* "Reservists" are any members of the public who serve in the armed forces and emergency services on a part-time basis. Many will hold down regular civilian jobs and be called up on a "when needed" basis. Reserve forces include the Territorial Army, Royal Naval Reserve, Royal Air Force Volunteer Reserve, Royal Marines Reserve, retained firefighters and the Special Constabulary. Groups like the RNLI, the Salvation Army and the St John Ambulance, British Red Cross, St Andrews Ambulance, and the RVS are charitable organisations but are pressed into service to supplement the civil defence, the armed forces and post-attack distribution of aid.There are obviously procedures and plans in existence now, but they have not been disclosed. It would seem likely that the procedures would be similar to above, and would be covered by the Civil Contingencies Act 2004.

Emergency Powers Act 1939

Defence Regulation 18B

Civil Contingencies Act 2004
UKWMO/ROC announcement
bikini state
Fig.2 -Bikini State