"In the event of enemy action within domestic territory, disorganized civilians and organized evacuations would crowd the highways. The Armed Forces would be using the highways too. How should these movements be coordinated and controlled? It is no solution simply to say, shove the civilians into the ditch and let the troops go by. We must work out something much better than that. Blackouts and dimouts would be imposed. Telecommunications must be controlled. Sabotage must be watched for and prevented. How would all these local incidents of war be policed - by soldiers, scurrying all over the place? - or by the civilian, block wardens ? How should an apparent offender be dealt with - by petty provost courts sitting in every town? - by an indictment in one of the 80-odd Federal district courts? How? Local supplies must be conserved and rationed; feeding centers and welfare services must be provided. Gasoline is the key to movement; but who is to keep the key? Suppose the military authority orders the evacuation of an area. Who will see to it that the inhabitants get off? Who will supply the transport? Who will conduct the movement, provide food and shelter, administer the relocation? Evidently combat forces could not perform all these functions--yet the functions must be performed. There must be working arrangements between the Armed Forces and the local civil authorities. These working arrangements must be flexible, responsive to the situation as it presents itself--like the quick interaction of trained players on a basketball team."
National Defense University: http://www.ndu.edu