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Shadow of Continuity: Cheney, COG, and the Rise of the Perpetual Shadow Government
In this episode of War Lab we trace a quiet, epochal re-engineering of American national security: how the Cold War continuity-of-government (COG) apparatus was repurposed — legally, operationally, and physically — into a near-permanent “shadow government” designed to survive and sustain a vastly broader set of catastrophes. This isn’t a 9/11 origin story. It’s a story about preparation, policy, and power that began months before the attacks and accelerated in their wake.
Hosts take you inside the doctrine, the bunkers, and the personalities — especially Vice President Dick Cheney and his counsel David Addington — who transformed continuity planning from a doomsday contingency into an enduring, executive-led operational system.
What you’ll hear
A clear, chronological unpacking of COG’s Cold War foundations (Mount Weather, Raven Rock, Greenbrier) and the three-part continuity doctrine (COG / COOP / ECG).
The May 2001 policy pivot that put Cheney in charge of preparing for catastrophic WMD terrorism — and why 9/11 was an accelerant, not the origin.
How the PEOC bunker moment on 9/11 produced immediate operational orders (including the shoot-down authorization) and the simultaneous birth of expansive legal rationales.
The logistics and human cost of a perpetual shadow government: rotating teams of senior officials, 90-day bunker cycles, and constant readiness.
The legal architecture that enabled secrecy and executive control: the unitary executive theory, the Addington legal strategy, and NSPD-51’s transformative language (the catastrophic emergency trigger and “cooperation as a matter of courtesy”).
The constitutional stakes: how the program reshaped the balance among the branches and what it means for oversight, democratic legitimacy, and the future of emergency governance.
Why it matters
This episode shows that continuity planning is not merely a technical contingency; it’s a political and constitutional project. The structures put in place to ensure survival also concentrated power, shielded policy from oversight, and enshrined a legal framework that grants broad unilateral authority to the executive in “catastrophic” circumstances. Those arrangements remain official policy today — and the questions they raise about sovereignty, accountability, and the resilience of constitutional government are urgent.
Listen if you want to understand
How national survival planning became national governance planning.
Why secrecy and legal theory matter as much as bunkers and emergency rations.
The human and institutional tradeoffs baked into perpetual emergency readiness.
The contours of a debate that will shape the next major crisis: who should decide what counts as a catastrophic emergency — and who should run the country when it happens?
Tune in for a rigorous, historically grounded, and unflinching look at how continuity became power — and what that means for democracy in an age of new threats.
View all episodes
By CJHIn this episode of War Lab we trace a quiet, epochal re-engineering of American national security: how the Cold War continuity-of-government (COG) apparatus was repurposed — legally, operationally, and physically — into a near-permanent “shadow government” designed to survive and sustain a vastly broader set of catastrophes. This isn’t a 9/11 origin story. It’s a story about preparation, policy, and power that began months before the attacks and accelerated in their wake.
Hosts take you inside the doctrine, the bunkers, and the personalities — especially Vice President Dick Cheney and his counsel David Addington — who transformed continuity planning from a doomsday contingency into an enduring, executive-led operational system.
What you’ll hear
A clear, chronological unpacking of COG’s Cold War foundations (Mount Weather, Raven Rock, Greenbrier) and the three-part continuity doctrine (COG / COOP / ECG).
The May 2001 policy pivot that put Cheney in charge of preparing for catastrophic WMD terrorism — and why 9/11 was an accelerant, not the origin.
How the PEOC bunker moment on 9/11 produced immediate operational orders (including the shoot-down authorization) and the simultaneous birth of expansive legal rationales.
The logistics and human cost of a perpetual shadow government: rotating teams of senior officials, 90-day bunker cycles, and constant readiness.
The legal architecture that enabled secrecy and executive control: the unitary executive theory, the Addington legal strategy, and NSPD-51’s transformative language (the catastrophic emergency trigger and “cooperation as a matter of courtesy”).
The constitutional stakes: how the program reshaped the balance among the branches and what it means for oversight, democratic legitimacy, and the future of emergency governance.
Why it matters
This episode shows that continuity planning is not merely a technical contingency; it’s a political and constitutional project. The structures put in place to ensure survival also concentrated power, shielded policy from oversight, and enshrined a legal framework that grants broad unilateral authority to the executive in “catastrophic” circumstances. Those arrangements remain official policy today — and the questions they raise about sovereignty, accountability, and the resilience of constitutional government are urgent.
Listen if you want to understand
How national survival planning became national governance planning.
Why secrecy and legal theory matter as much as bunkers and emergency rations.
The human and institutional tradeoffs baked into perpetual emergency readiness.
The contours of a debate that will shape the next major crisis: who should decide what counts as a catastrophic emergency — and who should run the country when it happens?
Tune in for a rigorous, historically grounded, and unflinching look at how continuity became power — and what that means for democracy in an age of new threats.