There is no rationale for this document except two 1) it's not real, or 2) there is a plan to inter American citizens. It seems like a pretty convincing example of a bureaucratic document not to be real, so there seems no other explanation than Tyranny Rising!
YOUR COPY I looked at this and it's not clear that it is aimed at camps for the CONUS (Continental United States). The military is notorious for generating documents for all contingencies so it may be that a sinister construction of this is unwarranted. Caution is always suggested.