From: Exhibits of the Joint Committee, Pt. 12, pp. 431-441
[Note, this is a partial digitization of the "separate volume", most of 
which consists of tables which are of low value and so poorly reproduced 
that no attempt will be made to present them here until better copies 
are found. This file contains the first ten pages, which are the "meat" 
of the exhibit, and certain sections which were of interest.]

Page 431

DEPARTMENT OF THE NAVY
OFFICE OF THE SECRETARY
WASHINGTON
SOURCE DOCUMENT #1
"JAPANESE COMBINED FLEET TOP SECRET OPERATION ORDER #1"
USED BY THE NAVY IN COMPILING THE
"NAVY SUMMARY OF THE JAPANESE PLAN FOR THE ATTACK ON PEARL HARBOR"
(Record of Proceedings, pages 432-460).
(EXTENDED AS A PART OF EXHIBIT #8
IN THE JOINT CONGRESSIONAL INVESTIGATION
OF THE ATTACK ON PEARL HARBOR
SECRET Page 2/1
COMBINED FLEET TOP SECRET OPERATION ORDER 1
Flagship NAGATO, SAEKI BAY 5 Nov 41 YAMAMOTO, Isoroku Commander in Chief Combined Fleet 145 of 700 copies COMBINED FLEET ORDER Combined Fleet Operations in the War Against the UNITED STATES, GREAT BRITAIN and the NETHERLANDS will be conducted in accordance with the Separate Volume. Page 432
Combined Fleet Top Secret Operation Order 1
Separate Volume
Page 2/2
Combined Fleet Operations in the War Against the UNITED STATES, GREAT BRITAIN and the NETHERLANDS
CONTENTS I. Operation of the Combined Fleet in Case of War with the UNITED STATES, GREAT BRITAIN and the NETHERLANDS Begins during the China Operations. A. Outline of operations B. Preparations for war and the outbreak of war. 1. Preparations for the outbreak of war 2. The outbreak of war and the use of arms theretofore. Page 2/3 C. First Phase (DAI ICHI DAN) Operations 1. Operation policy 2. Outline of operations against A (TN American.) Fleet 3. Outline of Southern Area operations 4. Operation periods 5. Allocations of forces D. Second Phase (DAI NI DAN) Operations 1. Operation policy 2. Important points which must be defended and advance bases in occupied territory 3. Areas expected to be occupied or destroyed 4. Allocation of forces Page 2/4 E. Protection of our sea traffic, destruction of enemy sea traffic, and mine warfare 1. Operations to protect sea traffic 2. Operations to destroy sea traffic 3. Mine warfare F. Communications G. Supply H. Operations other than those of the Combined Fleet 1. Operations of forces at naval stations and auxiliary naval stations 2. Operations of the CHINA Area Fleet Page 2/5 I. Joint Army-Navy Agreement (Separate Volume)(TN Missing.) II. Operations of the Combined Fleet in Case War with RUSSIA Begins during the War with the UNITED STATES, GREAT BRITAIN, the NETHERLANDS and CHINA A. Operation policy B. Allocation of forces
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Page 433 C. Operations other than those of the Combined Fleet 1. Operations of forces at naval stations and auxiliary naval stations 2. Operations of the CHINA Area Fleet III. Miscellaneous Regulations Page 2/6 A. Time to be Used B. Charts to be Used C. Identification of friendly and enemy forces Page 2/7 I. COMBINED FLEET OPERATIONS IN CASE WAR WITH THE UNITED STATES, GREAT BRITAIN AND THE NETHERLANDS BEGINS DURING THE CHINA OPERATIONS A. Outline of Operations 1. In the east the American Fleet will be destroyed and American lines of operation and supply lines in the ORIENT will be cut. 2. In the west British MALAYA will be occupied and British lines of operation and supply lines to the ORIENT, as well as the BURMA Road, will be cut. 3. Enemy forces in the ORIENT will be destroyed, bases of operations will be seized, and areas with natural resources will be occupied. 4. Strategic areas will be seized and developed; defenses will be strengthened in order to establish a durable basis for operations. Page 2/8 5. Enemy forces will be intercepted and annihilated. 6. Victories will be exploited to break the enemy will to fight. B. Preparations for War and the Outbreak of War 1. Preparations for the outbreak of war a. The empire is expecting war to break out with the UNITED STATES, GREAT BRITAIN and the NETHERLANDS. When the decision is made to complete over-all preparations for operations, orders will be issued establishing the approximate date (Y Day) for commencement of operations and announcing "First Preparations for War". The various forces will act as follows: Page 2/9 (1) All fleets and forces, with special orders, will organize and complete battle preparations in accordance with the allocation of forces for First Period (DAI IKKI) Operations of First Phase (DAI ICHI DAN) Operations. When directed by the commanding officers of the various forces, they will proceed at the proper time to the pre-operation rendezvous and wait in readiness. (2) All forces will be on strict lookout for unexpected attacks by the Americans, British and Netherlands forces.
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Page 434 (3) The commanding officers of the various forces may carry out such secret reconnaissance as is especially necessary to the operation. (4) Pursuant to defense plans, 4th Fleet will begin mining the NAMPO GUNTO. Page 2/10 b. When the advance forces necessary for carrying out the operation have been dispatched to the area of operations, the order "Second Preparations for War" will be issued, and each force will act in accordance with the following: (1) Submarine forces attached to the Advance Expeditionary Force (SENKEN BUTAI), Striking Force, Commerce Destruction Unit, South Area Force and South Seas Force, on orders from the commanding officers of the various forces, will proceed at the proper time to the area of operations. (2) Remaining forces, on orders from the commanding officers of the various forces, will proceed so as to be in position for the outbreak of the war. c. After the required preparations for war have been made, if the situation changes significantly, specified forces may be returned from "Second Preparations for War" to "First Preparations for War". Page 2/11 2. The outbreak of war and the use of arms theretofore a. The time for the outbreak of war (X Day) will be given in an Imperial General Headquarters order. The order will be given several days in advance. After 0000 hours, X Day, a state of war will exist. Each force will commence operations according to plan. b. If a serious enemy attack is received before X Day, the following measures will be taken: (1) Forces which are attacked will counterattack immediately. Before the X Day orders are issued, counterattacks by base air forces will depend on Imperial General Headquarters Orders. Page 2/12 (2) After the X Day order is issued, all forces will enter into a state of war and begin operations without waiting for special orders. (3) Prior to the issuance of the X Day order, the outbreak of war will depend on Imperial General Headquarters orders. c. After "Second Preparations for War" has been ordered, military force may be used in unavoidable cases such as the following: (1) If American, British or Netherlands ships or airplanes approach the vicinity of our territorial waters and such action seems to create a danger. (2) If our forces, will on the move outside our territorial waters, are involved in positive actions which appear to endanger them by forces of these countries.
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Page 435 Page 2/13 C. First Phase (DAI ICHI DAN) Operations 1. Operation policy a. The Advance Expeditionary Force (SENKEN BUTAI) (TN "6th Fleet" in pencil), Striking Force (TN "1st Air Fleet) in blue pencil.), South Seas Force (TN "4th Fleet" in blue pencil.), Northern Force (TN "5th Fleet) in indelible pencil.) and Main Body (TN "Combined Fleet" in Blue pencil.) will operate against the American fleet. (TN Portion of page cut out and "Advance Expeditionary Force (SENKEN BUTAI)...." and "Striking Force ...." inserted in blue pencil. Along with "South Seas Force" they are presumably subjects of the following sentence.) The South Seas Force will occupy and destroy important areas in the vicinity and will be ready for the enemy fleet in the AUSTRALIA Area. The Northern Area Force will be responsible for patrols against SOVIET RUSSIA. Page 2/14 b. While maintaining local superiority, the Southern Area Force (TN "2nd Fleet, 3rd Fleet, Southern Expeditionary Fleets and 11th Air Fleet" in indelible pencil.) will annihilate enemy fleets in the PHILIPPINES, British MALAYA and NETHERLANDS INDIES Area. At the same time it will co-operate with the Army as follows: (1) The operations against British MALAYA and the PHILIPPINES will be commenced simultaneously, and the enemy air forces and fleets in these areas will be repeatedly battered by air attacks. Army advance expeditionary groups (SENKEN HEIDAN) will be landed in strategic areas of MALAYA, the PHILIPPINES and British BORNEO as quickly as possible. Air Forces will be sent to reinforce air operations. Page 2/15 (2) The results of the operations will be exploited, and the main body of the Army invasion group (HEIDAN) will be landed in the PHILIPPINES and then MALAYA in order to occupy their respective areas quickly. (3) During the early stages of the operations the strategic areas of the CELEBES, DUTCH BORNEO and Southern SUMATRA will be occupied in the order named. The strategic areas of MOLUCCAS and TIMOR also will be occupied in the order named. The strategic areas of MOLUCCAS and TIMOR also will be occupied. Necessary air bases will be prepared in these areas. (4) As these air bases are completed, air forces gradually will be sent forward, and enemy air strength in the JAVA Area will be crushed. When this is accomplished, the main body of the Army invasion group (HEIDAN) will be landed in JAVA to occupy it. Page 2/16 (5) After the fall of SINGAPORE the strategic areas of northern SUMATRA will be occupied. Operations against BURMA will be carried out at the appropriate time to cut off the enemy supply route to CHINA. c. If the American fleet attacks, 3rd Fleet and Southern Expeditionary Fleet will carry out Southern Area operations temporarily. The bulk of combat strength will meet the attack. d. If the American fleet attacks, 3rd Fleet and Southern Expeditionary Fleet will carry out Southern Area operations temporarily. The bulk of combat strength will meet the attack. d. An element (TN "24S"** written in blue pencil.) of the Combined Fleet will destroy enemy sea traffic in the PACIFIC and INDIAN Ocean Area. Page 2/17 e. In order not to arouse the hostility of THAILAND and FRENCH INDO-CHINA, every effort will be made to secure their voluntary cooperation. But in the event of hostility, obstructions to our operations will be eliminated by force.
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Page 436 2. Outline of operations against the American fleet The classification of operations and the outline of operations are established in the following table. Each force will operate in accordance with the classification of operations indicated. Page 2/17, 2/18 SITUATION |CLASSIFICATION OF OPERATION|OUTLINE OF OPERATION ----------------------------------------------------------------------- At Outbreak of War|(TN This portion cut out.) ------------------------------------------------------------------------ At Outbreak of War|Method 2 for operations |1. The Advance Expedi- (Situation |against American fleet |titionary Force (SENKEN complicated by | |BUTAI) will reconnoiter using task force | |and make a surprise for attack) | |attack on the American | |Fleet. | |If conditions warrant, | |air bases at HOWLAND, | |TUTULIA, FIJI, etc., will | |be attacked with | |appropriate forces. | |2. The Striking Force | |will prepare for the | |American fleet. ----------------------------------------------------------------------- In Case American |Method 3 for operations |1. The Advance Expedi- Fleet Operates |against American fleet |tionary Force (SENKEN | |BUTAI), Striking Force, | |South Seas Force and | |Northern Area Force will | |operate against the | |American task force. | |2. If necessary, the Main | |Body will give support. | |3. If conditions warrant, | |an element of 11th Air | |Fleet may be temporarily | |diverted to the east. ----------------------------------------------------------------------- In Case American |Method 4 for operations |1. The Advance Expedi- Fleet Proceeds to |against American fleet |tionary Force (SENKEN Attack | |BUTAI), Striking Force, | |South Seas Force, | |Northern Area Force and | |Main Body, deployed for | |interception, will | |operate against the | |American fleet. The | |decisive battle strength | |of Southern Are Force | |will join immediately to | |meet the attack. | |2. Southern Area | |operations will be | |continued by 3rd Fleet, | |Southern Expeditionary | |Fleet and fighters of | |11th Air Fleet. Page 2/19 3. Outline of Southern Area Operations Southern Area Operations will be based on the operation policy and on the agreement between Commander in Chief, Combined Fleet and Commander in Chief, Southern Area Army. The Southern Area Force Commander will direct the operations unless otherwise ordered.
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Page 437 4. Operations periods First Phase (DAI ICHI DAN) Operations will be classified as follows. Changes will be by special order. a. First Period (DAI IKKI) Operations: This period will cover operations from the outbreak of war until the main body of the invasion army has been landed in the PHILIPPINES. Page 2/20 b. Second Period (DAI NI KI) Operations: In general, operations from the First Period (DAI IKKI) Operations until the main body of the invasion army has been landed in British MALAYA. c. Third Period (DAI SAN KI) Operations: Operations from the end of the Second (DAI NI KI) Operations to the end of completion of the occupation of the NETHERLANDS EAST INDIES. 5. Allocation of forces Allocation of forces during the First Phase (DAI ICHI DAN) Operations will be as follows. a. Allocation of forces during the First Phase (DAI IKKI) Operations - Separate Table 1 b. Allocation of forces during the Second Phase (DAI NI KI) Operations - Separate Table 2 c. Allocation of forces during the First Phase (DAI SAN KI) Operations - Separate Table 3 d. Allocation of forces for interception operations - Separate Table 4 Page 2/21 D. Second Phase (DAI NI DAN) Operations 1. Operation policy a. The Advance Expeditionary Force (SENKEN BUTAI) will continue to make reconnaissance raids on the American and British fleets. These fleets will be attacked by base air forces, carrier air forces, etc., at opportune times. b. American and British lines of operation and supply lines in the ORIENT will be cut in order to strengthen the defenses of strategic areas. c. Enemy forces in the waters under our control and remnants of the enemy in occupied areas will be mopped up in order to secure resources and protect sea traffic. Page 2/22 d. If the American and British fleets attack, they will be destroyed individually by taking advantage of inner lines of defense. e. Operations to destroy American and British sea traffic will be intensified. 2. Important points which must be defended and advance bases in occupied territory. a. Important points in occupied territory which must be defended are as follows: MANILA, DAVAO, SINGAPORE, BATAVIA, SOERBAYA, TARAKAN, BALIKPAPAN, MENADO, MAKASSAR, AMBON, PENANG, RABAUL. (TN DAVAO and MENADO emphasized by blue pencil circles.)
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Page 438 b. Advance bases in occupied territory are expected to be as follows: MANILA, SINGAPORE, SOERBAYA Page 2/23 3. Areas expected to be occupied or destroyed The following are areas expected to be occupied or destroyed as quickly as operational conditions permit: a. Eastern NEW GUINEA, NEW BRITAIN, FIJI and SAMOA b. ALEUTIANS and MIDWAY c. ANDAMAN Islands d. Strategic points in the AUSTRALIA Area 4. Allocation of forces The allocation of forces for Second Phase (DAI NI DAN) Operations is established in Separate Table 5 The allocation of forces for interception operations will be based on Separate Table 4.
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Page 439 Page 2/25-Page 2/26 E. Protection of Sea Traffic, Destruction of Enemy Sea Traffic and Mine Warfare. 1. Operations to protect sea traffic. Sea traffic will be protected as prescribed by force commanders, in accordance with the Plan for Protection of Wartime Commerce (1941), in addition to the following: Philippines and Netherlands East Indies Force Sectors of Responsibility West of Long 13602'E (TN Add 'excluding the defense area of 3 Base force.") [1] South of Lat 20E South of a line passing through the northern edge of BRITISH BORNEO at an angle of 315 Principal Duties 1. Control of ship movements within assigned sectors 2. Matters related to escort of ships within assigned sectors 3. Gathering and disseminating information 4. Control of communications of ships navigating within assigned sectors 5. Issuing and canceling alarms within assigned sectors. Malay Force Sectors of Responsibility South of a line passing through the northern edge of British Borneo at an angle of 315 Principal Duties [ditto?] [2] South Seas Force Sectors of Responsibility East of Long 13602'E (TN add "plus defense of area of 3 Base Force.") [1] Sea area south of Lat 24E Principal Duties [ditto?] [2] Northern Force Sectors of Responsibility Sea area north of Lat 24E Sea area south of Lat 29E Principal Duties [ditto?] [2] Other Operational Forces Sectors of Responsibility All sectors of operation Principal Duties Co-operation in the following matters: 1. Destruction of enemy forces in all sectors of operations 2. Escort (Chiefly direct escort, depending on the situation or indirect escort) 3. Communications [1] Editor's Note: Revised by "errata" issued by Flag Secretary, Combined Fleet as Combined Fleet Ultrasecret Serial Part 99, dated 17 Nov 41, aboard the NAGATO, [SANKI] WAN. [2] Transcriber's Note: It appears there should have been "dittoes" in the "Principal Duties" column of this table. Without them these units would have had no "Principal Duties." LWJ
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Page 440 2. Operations to destroy sea traffic a. Policy Page 2/27 The immediate destruction of vital points in the sea traffic of the UNITED STATES, GREAT BRITAIN and the NETHERLANDS, combined with a checking of enemy forces, will aid our principal operations. We will endeavor to crush the enemy will to fight by gradually strengthening our efforts and by realizing our aims over a long period of time. b. Outline for execution (1) Seizure of enemy ships at the outbreak of war: Enemy ships will be seized, provided that our principal operations are not thereby impaired. Close liaison will be maintained with Imperial General Headquarters and with homeland combat forces (NAISEN BUTAI). Sectors of responsibility for each unit, in observation and seizure of enemy ships, will correspond in general to sectors of responsibility in 1, "Operations to protect sea traffic." Page 2/28 (2) The Commerce Destruction Unit, as prescribed by its commanding officer and as opportunities arise in the South Seas Area after the outbreak of war, will operate between CENTRAL and SOUTH AMERICA and AUSTRALIA. Depending on the situation on the west of coast of SOUTH AMERICA, one element will proceed to the INDIAN OCEAN Area and will operate between AUSTRALIA and AFRICA. (3) According to the progress of operations and to what is prescribed by the Advance Expeditionary Force (SENKEN BUTAI) commander, expeditionary forces not exceeding one submarine division will operate off the coasts of CENTRAL and NORTH AMERICA to the extent that the principal operations are not thereby hindered. The Hawaiian Area Force will endeavor to cut rear lines of supply at every opportunity. Page 2/29 (4) One element of DesRons 4, 5, 6, and 7 at the end of First Period (DAI IKKI) Operations of First Phase (DAI ICHI DAN) Operations, will be assigned as directed by Southern Force Commander to destruction of sea traffic off the south coast of JAVA and at the western entrance to the MALACCA Straits. When southern First Phase (DAI ICHI DAN) Operations are completed, they will carry out a vigorous campaign of destruction of sea traffic in the INDIAN OCEAN and AUSTRALIA Areas. (5) In the pauses after First Phase (DAI ICHI DAN) Operations or when opportunities arise during operations, forces for destroying sea traffic will be strengthened and will operate vigorously with surface ships and airplanes. 3. Mine warfare Combined Fleet mine warfare will be directed by individual force commanders, in addition to conformance with the following: Page 2/30 a. Southern area of operations (1) Standard practices in offensive mine warfare - Appended Table 1. (2) (Standard) Summary of bases to be protected by mines and antisubmarine nets - Appended Table 2 (3) Summary of mine and antisubmarine nets - Appended Table 3
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Page 441 (4) Outline for establishing mine barriers at the end of First Phase (DAI ICHI DAN) Operations - Appended Table 4 b. South Seas Area The 4th Fleet defense plan will be followed and offensive mine warfare will be carried on as directed by the South Seas Force Commander. Page 2/31 c. When mines are laid or swept, the force commander in each case will report positions of mines, navigable sectors, etc., to the proper authorities. d. Declarations concerning the laying of mines Declarations will be issued by Imperial General Headquarters, after being routed through Combined Fleet Headquarters; they will be issued chiefly as a threat to the enemy.
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[The next ~30 pages are various tables covering mining, supply and communications. When better copies are available we will convert and upload them. LWJ] Page 471 Page 2/96 H. Operations Other Than Those of the Combined Fleet 1. Operations of forces at naval stations and auxiliary naval stations a. These forces will strengthen the defense of strategic points, protect sea traffic and co-operate with the Combined Fleet or China Area Fleet in operations in the area in their charge. b. Air forces and other necessary forces will be moved to the necessary places as conditions demand. They will be placed under the operational commander in chief of the fleet station or auxiliary naval station in charge of the area concerned. 2. Operations of CHINA Area Fleet Page 2/97 a. In general, the fleet will continue operations against CHINA with its present strength. It will annihilate land forces and wrest control from them. b. At the outbreak of war the force of which 2ND CHINA Expeditionary Fleet is the nucleus will co-operate with the Army to occupy HONGKONG and annihilate enemy forces stationed there. c. The defenses and security measures within the occupied areas will be strengthened and sea traffic along the CHINA coast will be protected. At the same time every effort will be made to deny the use of the CHINA coast to enemy ships and airplanes. d. It will co-operate, as the occasion demands, with the Combined Fleet and Southern Army in escorting Army surface transports and in defending assembly points. Page 2/98 II. OPERATIONS OF THE COMBINED FLEET IN CASE WAR WITH RUSSIA BEGINS DURING THE WAR WITH THE UNITED STATES, GREAT BRITAIN, THE NETHERLANDS AND CHINA A. Operation Policy 1. The operations against the UNITED STATES, GREAT BRITAIN and the NETHERLANDS will be modeled generally after the operation policy set forth in I. 2. The policy for operations against RUSSIA will be as follows: a. In the event war breaks out during First Phase (DAI ICHI DAN) Operations (1) For the most part, 5th Fleet and the homeland combat forces (NAISEN BUTAI) will be charged with defense. They will protect vital sea traffic along the coast of JAPAN and will protect strategic areas from air attack. Page 2/99 (2) Thereafter, as quickly as southern operations and operations against the American Fleet permit, elements of light force and air forces will be diverted to operations against RUSSIA. The operations described in the above paragraph thus will be strengthened.
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Page 472 b. In the event war breaks out after the completion of First Phase (DAI ICHI DAN) Operations. The greater par of the 5th Fleet and one element of the light forces will be shifted to operations against RUSSIA. The Russian fleet in the ORIENT will be immediately annihilated. Pressure will be brought to bear along the coast of Russian territory in the FAR EAST. In co-operation with the Army, these forces will destroy enemy air strength in the MARITIME Province and USSURI Province, and occupy VLADIVOSTOK and other strategic points in the FAR EAST. Page 2/100 B. Allocation of Forces. Separate Table 6 (Will be sent later) (TN Missing.) C. Operations Other Than Those of the Combined Fleet 1. Operations of forces at naval stations and auxiliary naval stations. a. The naval stations at YOKOSUKA, KURE SASEBO and MAIZURU and the auxiliary naval stations at OMINATO, CHINAKI and Port ARTHUR will strengthen security measures against Russian submarines and airplanes and will annihilate them if they appear in areas under their jurisdiction. b. When the outer combat forces engage in active operations, air forces and other necessary forces will be transferred to the necessary points and will co-operate in these operations. Page 2/101 2. Operation of the China Area Fleet The Force which has 1 China Expeditionary Fleet and 3 China Expeditionary Fleet as its nucleus will cover the movements of the Army forces which will be diverted from central and northern CHINA. It will escort these forces during transport at sea and deploy suitably. III. MISCELLANEOUS REGULATIONS A. Time to be Used Central standard time B. Charts to be Used Charts (charts of military places) to be used are as follows: Page 2/102 CHART (CHART OF MILITARY PLACES) USE (ON SHIPS) Navy Ultrasecret 347 For use in general operations Chart of Military Places in (ships) PACIFIC Ocean Special Chart of Military 1. For use in joint Army-Navy Places operations 2. For use in operations in narrow waters
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Page 473 Note: Charts for general Operations in the MALAY Area will be established separately. (TN This note subsequently has been deleted.) [1] C. Identification of friendly and enemy forces The identification of friendly and enemy forces will be based on Combined Fleet Doctrine and the following: Identification between Navy ships and Japanese merchant shipping (including transports and ships attached to the Army) and between the various Army and Navy land installations (including forces) will be in accordance with Signal Regulations for Identification of Japanese Ships in Wartime. (TN Insert "but, in odd-numbered months Method 1 will be followed, in even-numbered months Method 2.") [1] (TN Add "Identification among airplanes will be based on the Joint Army-Navy Agreement Concerning Identification of Friendly Military Airplanes.") [1] [1] Editor's Note: Revised by "Errata" issued by Flag Secretary, Combined Fleet, as Combined Fleet Ultrasecret Serial 1 Part 99, dated 17 Nov 41, aboard the NAGATO, NAKKI WAN.
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