SMALL WARS MANUAL

UNITED STATES MARINE CORPS

1940

CHAPTER X

RIVER OPERATIONS

UNITED STATES
GOVERNMENT PRINTING OFFICE
WASHINGTON :1840

TABLE OF CONTENTS

C E A PI.~ 1NTROI)UCTION. 11. ORCIANIWTION. 111. LOGISTICS. IV. TRAINING. V. IXI'PIAI, OPER.TI?ONS. VI. INFANTRY I'ATIlOLS. VII. IIIOUNTED DETACHMENTS. VIII. CONVOYS AND CONVOY ESCORTS IX. AVIATIOS. X . RIVER OPERATIONS. XI. DISARMAMENT OF POPULATIOX. XII. ARMED NATIVE ORCANIWI'IOSS. XIII. hlILlTARY QOVERNAIENT. XIV. SUPERVISION OF ELECTIOSS XV. WITHUR.4WAL.

UNCLASSIFIED
SMALL WARS MANUAL

UNITED STATES MARINE CORPS

RIVER OPERATIONS
Par.

I'age

SECTION I . RIVEIL~PERATIONS IN GENERAL. 10-1 to 1 G 2 11. TYPES AND CHAR~~CTERISTICS OF BOATS. .................... 10-3 to 10-11 111. I'REPARATIONS FOR RIVER OPERATIONS .... 10-12 to 10-17 IV. OCCUPATI~N os a RIVER. .... 10-18 to 10-31
.

1-3
5-10

11-18 17-!.?,4

SE@~OS 1
RIVER OPERATIONS I N GENERAL
Par
Pnsr

Nw.essit.v for river operat~onn . . . . . . . .......... 1041 1 General charactrr~stics of rivers. . . . . . . . . . . -..--.--..--.-.-.1042 2 1 G 1 .Necessity for river operations.--rr. During tile estimate of the situation, or after t h e initiation of the intervention, it may become apparent that navigable in1:uid waterways exist within the theater of operations to such an extent that their use by the intervening force is necessary or advisable. b, In niany countries, water routes are a priluary nieaiis of tmnsportation and rommunication, especially if there are few and inadequate railroads, roads, or trails. I n some sectious of the country, they may be the only avenues of approach to areas occupied b y hostile forces. So long as water routes are more economic*alin time and 1no11ey than other available means, they mill be employed by the local inhabitants a n d their use must be seriously considered in the plan of campaign of any force entering the country for small war operations. Soc11 river operations as appear practicable should be coordinated with the laird operations which are t o be conducted simultaneously. c. I n some cases, i t nrny be necessary or advisable to mcupy a river valley i n order to protect the foreign civilians, of other than United States citizenship, and property located therein against hostile depredations. d. When offensive operatioils against the l~ostileforces interrupt the nomial land routes, such forces will turn to navigable rivers as a means of supply arrd communication, or as an avenue of escape. Adequate and timely preparations slrould be undertaken by the intervening force to deny these water routes t o the enemy. e. Navigable rivers often form pnrt o r all of the boundary between the affected country and an adjacent State. I f the hostile forces are receiving assistance and supplies from the neighbring wuntry, river patrols may sarioulsly interfere with, but never entirely suppress, such activities. Amicable a p m e n t s should be completed as soon as possible, through the Department of State, for the use of territorial waters b y such patrols, and for the pursuit of hostile groups who
1

SWM 10-2
RIVER OI'ERATIONS I N GRSER.41.

may 1150 tlie rernote districts of t h e friendly count~yas a h:rse of operations or place of refuge. 10-2. General characteristics of rivers.--a. All navigal~lerirers have c.ertain similar characterist,ics. Their general profile i s best represented as a series of terraces, the levels of ml~icha1.u relatively placid st,rettches of water of Inore or less uniform depth iuld current, and t h e walls of ~ v l ~ i c h impt~ssiblefalls or rapids. As one proare ceeds upstream f i ~ n 1 the nio~~tll of the river, the depth of water in encli successive le,vel is usually less than i n the one precerling. Tltis cl~aracteristicfeatore determines the distance that a. boat of any given draft can t.n~veland eventually makes t h e use of any type of boat iolpossible. 'llie extent of ei1c11 gmnp of falls arid ra.pids, their relative distance fronr tlie mouth of tlie river, aud the lengt1,jlr of tlie intervening stretcl~esof srnootl~water will vary with every river. For rxample, the first obstacle in the Congo River in Africa L hm~dredmiles fro111 its mouth, altlrough the second level is only : of t,he river presents no impassable. falls for o ~ , e ra thousand miles. The Ya~rgtzeRiver in China is ni~vigilhleby ocean-going vessels for nearly :I. tl~ousandmiles from its 1nout11 before t l ~ e Pangtze Gorge is reacl~ed. Tlle Coco River in Nicaragua car1 be traveled for over 200 miles before the first reill falls and rapids, extenditig over 30 miles, are fonr~d; the second level is navigttble for some 60 miles; and the third level for another 70 ~niles to the head of navigation. i~. These various levels :Ire crrstomarily the "lower," LLmicldle,"and "upper" rivers as one proceeds upstream from the mouth to the head of navigation, and as the depth of water in the succeeding levels necessitates a change in the type and draft of boat which can be used. c. Tlie condition of the river, the depth and length of the navigable stretches, and the obstacles presented to navigation vary v i t h the seasons of the year. At certain times, the water in the middle and upper rivers may b e so low that numerous portages are necessary. When the river is i n flood, such obstacles may disappear entirely and the boats normally restricted to t h e middle river may proceed all the way to the head of navigation, or the lower and middle rivers merge into one. This characteristic mill influence the time of year and the ease and practicability of conducting river operations. The probability that supply boats could not reach Poteca, on the Coco River, during the months of April and Mar, influenced the decision to abandon that outpost in April 1929. I n commenting on the Nile Expedition of 186445, Callwell says, "And it must b e d d e d t h a t the sttpply difficulties were enormously increased by thk lateness of the
2

SWM 1 0 2

start, by the unfortin~atrp(~s1poneme11t in deciding on the clisl>atel~ of the expedition. A few weeks sufficetl t o convert the Nile bet\~eent h e second ancl ttirtl crttnracts fro111 a great wnterv-ay up \vlllich tlie steamers from bslolr. Wadi Halfa could have steamed nit11 ease, into a. s~tccessiou of tort,t1r~us ralirls pttssuble only wit11 difficnlty by snm11 boats." ('LSma.llWars, Tlleir Principles and Practice," by Col. C. E. Callwell, 3d ed., p. 7 0 . ) d. As tlle river empties into t,he ocean, the sedinlent -wl~iel~ it carries is deposited to form n bar or shoal. I n the case of l:~rge rivers, tllr sl~oalis usually so deeply sribmerged that it does not preveilt t h e entrance of ocean going vessels. I n those rivers usually fotuld in t h e theater of small \var operations, the b a r inuy be so near the snrface, of the water t l ~ a t it is a renl obstacle ~ n may d make tlie passage of even the ordinary stiil)'s boat s dange:erons o~~dertakiug, especially if t l ~s eervices of a local pilot are 11ot available.

SWM 1 0 3

SECITON I1
TYPES AND CHARACTERISTICS OF BOATS
Pi>,-.

Page

General.......................... Coastrvise communications.............................. Nature of the river..................... Lower river boats ........................................... hliddlo river boat Uppcr river boats T y p of boats availabl Method of propulsion.. ................................ . . . . . . . . . . . . . . . . . . . . . . . . Influence of tactical prineiplm..-. .

IQ-3 1R-4 10-5 I@-6

1+7

5 5

5
6

6
6 6 8
9

lltS 10-9
1+10

10-11

10-:i. General.-The types and characteristies of boat,s \\.hicl~:Ire to be used i n a particnlt~r river operation clepenrl upon several factors, of mhich the more important are: (1) Coast.wise coxnmunications required. (2) Nature of the river. (3) Desirable boat charncterist~icsfor lo~ver,middle, and npper river use. (4) Types of boats available. (5) Method of propulsion. (6) Influence of tactical principles. 1M. Coastwise communications-Navy vessels, motor launclies, and local coastal scliooners, normally mill be iised for maintaining coastwise communications. Unless a main supply base is located at the month of the river o n which the operations are being conducted, coastal shipping mill be used for the transportation of personnel and replacements, and primarily for the shipment of snpplies. 10-5. N a t u r e of the river.-The nature of the rirer, ~ i l o r than e any other factor, determines the types of boats which will be used in river ope,ration. The depth of the lower, middle, and upper rivers; the swiftness of the current; the distances between obstacles i n the river; the number and length of the portages required; the season of the year; and the probability of securing native boatmen; each of these mill have some effect on the decision. Ordinarily, at least three types of boats mill be required because of the limitations as to draft in the various river levels. If the lower river is more,

SWM 1 0 6
TYPES .LSD CH2iR.4C1'ERIli'r1<:S OF BOATS

than 300 miles long, or has a linriting depth of over 8 feet, boats of the constwise type will l)e IIWCI in ndclition to the 11sua1 river types. On t h e ottrer l ~ m r ~ if l , the length of the. middle river is quite short, i t miry be nrore econo~nic:~l to use only t w o types of boats, tl~ose. f o r the lower and upper rivers only. 10-6. Lower river boats.-1lo:ats to be nsed on the lower river should be motor propelled, of 4 feet draft or less, ancl vitlr ~~orlnally : I maximn~nspeed of 15 nliles or more 1n.r 11our. Tlreir propellers should be. protected to preyent dirmage from subn~erged rocks or l o p . If they are procored outside of the tlmeater of operations, they shonld he of such size and v e i g l ~ tas to permit them to 1 % transported by Navy transports. Tlrey sl~otrldbe provicled mitl~.30 or .50 cirliber nracliine guns moonted on s\virel nlonnts a t tlre bt~w, iunl light tirnror pro~ided to protect. the gunner, liel~r~sm:rn, *nil fuel timnk. 1(1-7. Middle river boats.-Boats fc~r nse on tl~en~iddle river sl~o:~ld be of sufficient size to e;mrry a t least one sqrcail t~nd its eqi:i~)nie~~t in :mddition to the bormt. crew. Nor~~lally tlresc boats slronld lrarr it draft e)rtvrerplant may h , itn ootbormrd motor or :in of 2?4 feet or less. T l ~ 1 inboard nmotor with the propeller pn)tected ngainst clamage from rocks and other obstacles. A mnximom speed of 20 miles per lmour is desirable. These b a t s sl~oul(l br strongly but liglrtly built, t o facilitate their passage thrnogh rapids am~ilrolldl stretches of wnter, or tlleir portage around such areas. Tl~e.30 eiiliber mticbine gun may iw mounted f ~ ) r \ ~ a r either tl, on its regulnr tripod mount, or on a swivel morcnt if one has been provided. 10-8. Upper river boats.-For tlre ripper rivers, the nrost stiitable boats are tltose obtnined looally frorn the natives. If these cannot be procured ill snfficient quantity, sutbstitutes sliould be of the light, s11allow-draft, canoe-type bont, ~vitlr fnirly wide, flat bottoms and built as stro~rglyus 1)ossible eornrner~suratewit11 tlreir light weigl~t. I'sovisin11should be 1n:mde for the rittnchrnent of outhoard motors, :~ltl~oogl~ the ~~orrnnl \\.ill be by hnnd in most, situatiotrs. nretl~odof pmpnlsio~~ Tl~ey \rill vnry in size from srnall ctmrroes capable of carrying one 11;ilf of a squad plus tlre crerv, to cargo canoes cap:thle of carlying 8 to 10 thonsnnd pounds of snpplies in :~tlditio~: t o the necessary crew. Tlle average upper river boat. slionld be of sufficient size to curry a cornplete sq11ad with its equipment! in addition to tlre crew. 10-9. Types of boats available.-+. Local bonk-local boats obtained in the theater of operations have been r~sedin the past wit11 n fair degree of success. Unless the openbtion is planned a considerable lengtli of time before its initiution, local boats will probably he

SWM 10-9

:TTI'I(5
ASll CHAIt\CTEI1ISTI<.'S

OF

l;<l:17rS

se ~d rtrigl~ ift the orrly or~es ;trailable. 'Tliest! boats sltonl(1 I)(: ~ ~ t ~ r c l m o they a r e to be nsecl for combat purposes. If tlie owners r i l l not agree t o ell thenr, a s is someti~~ies tlro case, it may h. nr?cessary to requisition tlrem. lieceipts must be given for snclr boats. A record sllould be made of tlre owner's namc, if it call be tlscertnitred, tibe date a n d place at which tlre bont mas aequirecl, its condition, t~rrdtlre estimated value. T h i s illformation sllould be for\vnrded to the a;.ctt comrnnnder o r 0 t h appropriate comnra~rderso t h t ~ t prolwr adjustment crtn be nlado o f the owner's cliri~nwhen it is submitted. I f combat botrts are rented on a per cEic71~ bnsis, t h e eventlval cost for rent,, plus the expense of repairs or replnceme~ltsif ills h ~ r t sare it is u s ~ ~ t ~ l l y damaged or lost, vill be esorbitrtnt. On tlre other Ila11(1, more econon~icalto rent local boats whir11 are ti> be 11srd solely for the trnnsportntinn o f supplies after the river lr~rsbee11 prrcified. ill clisracter. This complicates tlre Local boats ivill be lto~~descript repair and npkeep of motor-l~ropelled ernft. They Irave one clecicled all adrit~ttwge, Iio~~evc r ~of them will have been built for use o n tlre river otr nhiclr the operatio~lsare t o take place and, in that respect, they ~robttbly ~villb e srcperior to boats i~nportrclfor the operation. b. Wegttlns Xary boats ill seldom he available in s~~fficient nunrbers to meet tlie needs of the expedition. They may be used for coast~vise commonictrtions nnd on t h e lower ri~rer,depending o n the deptlr of the. water a n d the presence of rnpids or falls in that section of the river. Tlrey a r e too Irenvy, d r a n too much water, and a r e too slow t o n ~ l s r e r tlre llelm for use in tlre middle river. c. Marir~e Corps landing boats, especially the smaller types, probnldy can be used effectively in the lower and middle rivers. Their n~inament, rtnifor~nityof power plant and equipment, protected hottom a n d ljropeller, a n d the fact t h a t trained crews may &. available to 11:~nille t hml, twr important advruitages. Their ~veigllt may be a disi~dviurtag<: for midills river operrktion if many portages are req~tirecl. d. Theye a r e numerous boats available i n the ZJnited States which are suitable for srnirll wars river operat.ions and \vbich cart be purchased if tlre situation makes it necessnry. Tliey range in type from the larger slrnllow draft. boats which can be used on the lower rivers, to canocs snitable for employment in tlie upper river. S o f n r as possible they should have appro~ximatelythe same characteristics as those fonnd in the local theater of operations. Radical changes in type should be introduced wit.h caution. e. Robber boats probably will be used extensively in future small wars river operations.

SWM 10-10

TYPES

AXn

CMARACTERISTICS OF BOATS

f. Improrements and ne\v develop~nents are constantly taking place i n boat design and boat nraterials. One can never expect to obtain a irniform flotilla of boats for river operations. The difficulty will always be to get enough bouts of any description to meet tlie demands of the situation 1~1iiclr are suitable for use in the particular river involved. I t is pn~bnble that moch better bouts \rill be available in the future tlran l~ave been utilized for such operations in the past. 10-10. Method of propulsion.-a. Oenel-a1.-Boats used in river operations \\.ill be itlotor propelled, rowed, paddleil, poled, or towed, deperiding upon the. type of boat being used, the nature. of the. river, and the tacticti1 situation. 6. Ir~bomil v~toto?. boatr.-Inboard motor boats have the following advantages: (1) Speecl. (2) Usr~allygreater carrying cnl~acily tltan other types of boats. (3) Requires small crew.
They htrve tlle following disntlvantages:
(1) Noise of exhanst, oven though mfled, discloses the location of tlie patrol and gives warning of its approach. (2) Gasoline and oil must be carried for the period between the initiation of the patrol until t,he arrival of the first supply boats. This decreases tlie carrying capacity for troops nnd rations, mhich may be offset by the increased speed of the movement. (3) They draw too much water f o r use in the upper river, o r in some stretches of certain middle rivers. (4) Their power plant. often fails, or propellers are fouled or broken in rapids where power is most essential. ( 5 ) Weight of t h e boat increases the difficnlties of portaging around obstacles in t h e river. Inboard motors a r e espec?ially useful for trnnsporting the rnain body and supplies of a large patrol, and in the system of supply in the lower and middle rivers. c. Outboard motorbs.-(1) Outboard motorboats have the same advantages and d i ~ a d ~ m t t i g e as s inboard motorboats. They are more subject to failure during heavy rains tllan the inboard type. (2) . . Outboard motors can be used mith a fair degree of success rocks, ~rs, S I I I I ~ ~ I I in the upper river, althor~ghthe presence of s : t ~ ~ d I ) ~ trees, rind other debris, nrlcl the inn~~nien~ble rapicls normally enc~or~l~teretl in this section of the river i~rcrease the difficulties of operation.

PREPARATIOSI FOR RIVER 0PER.PTIORS

6, The crew of a boat. polrered mith an inboard motor should consist of a coxswain, an engineer, and a. pilot. An outboard motorboat. requires a n engineer nrld a. pilot only. Boats whicl~are propelled by hand; that is, by poling when going npstream and paddling .ivl~en to the size going downstream, require a much large,r crew in wlat,io~l of the boat. The smaller, upper river boats, capable of carrying from a half squad to a squad, should have a poling crew of three or four men at the bow, and a boat captain who handles the steering paddle or rudder at the stern. The larger supply and combat boats may reqniie as n~:~ny as twelve bowmen am1 tm,o men at the stern. Smaller crews than these can operate, but the s ] ~ e dof the patrol will b e adversely affected, and t h e danger.; of capsizing or losing control of the boat i n rough p rater mill be increased. 10-19. Boat procurement.+. After 51 decision has bee,n made to engage in a river operation, the earlier the necessary boats are procured, the better are the chances for success. If soch operations can be foreseen n.hen the expedition is organizing in the United States, lower- ancl middle-river boats, and a few light-draft boats nh'icl~may be suitable for use in the upper river, should he carried with the initial equipment, as well as a supply of outboard motors. 6. If suitable boats have not been providect, i t =ill be necessary to purchase or charter local boats. I f the supply of available craft exceeds t h e needs of t h e patrol, only the best of the various types reqnired a s determined by the composition of the patrol shonld be selected f o r the initial movement. It is advisable, however, to take possession of at least double that number so that they will be i m m d i ately available for supply and replacement pnrposes in the future. Boats should be inspected and inquiries made as t o their riverworthiness before they a r e purchased. I n many cases the supply of boats will be less than t h e required number or type, and the. size of the patrol may have to be curtailed, o r some compromise effected in (he distribution of personnel, equipment, and supplies among t h e boats. 10-16. Armament and equipment.--u. Organic.-The organic armament. and equipment, and the proportion of attached units, will not differ from that of an infantry patrol of comparable strength. For details, see Chapter 1 1 , "Composition of Forces," a n d Chapter V1, "The Infantry Patrol." b. IlUE*al.-The same principles apply to the amount of individual equipment carried in a river patrol as on an infantry land patrol. (See ch. VI, "The Infantry Patrol.") Each man, however,

1s

SWM 10-17
l'RZI':\IIAYTOSS

FOlt

1t11~?:11 Ol'I~I(A'U1OSS

should be provided wit11 a robbrr. \I-ater1)roof bag for carrying his pe1%~11ra1 equipment.. Thc hrrg slroul(1 be securely tied at the t l ~ ~ v a t and distei~dedto crr!:ltc. llrc nxtxinmm airslxice. If the bont capsizes, :IS is often the c:ise! the bt~g will fh~at ant1 snplrort the inan in his efforts to reach thc shorr. Mosquito llcts rn11.t ah\-ays be i~~cluded, especially in operations along tlle lo~vcr and inirlcllc rivers. c. 71out.-For the a r n r a ~ u e ~ of~lo\\-ert and middle-river boats, see paragraphs 10-6 slid 1(1--7. Each bont slroultl be eqnippecl with the follo\\.i~lg: 100-foot,stern nnd bow lines of 1 inch ~rranilnrope, in place rrttdy for i~isttlllt 1 1 s :it a11 timw. 1 paddle for each man reclnired to nu? it. 1 pole, metal shod, for each man required to use it. 2 long range foct~siirgflushliglrts. 1 giis<lline or ~n::kcslrift stove for preparing food. d. Si<pul.--l.':ttrols operating ill tho lower river should be equipped with :I reliable txvo-\I-ayradio set. Pt~trolsin tho middle and 11p1)cr rivers s h o ~ ~ carry ld the light, portable set and establish coinmunicatioil with the bas: ench day. (See ch. 11, 'LOrp~~izatio~i.')) Panels, meswge l~ick-upset, :~ndpyiatechnics should be ctrrried as with infantry patrols. (See ch. VI, "The Infantry Pi~trol.") e. i2rt:dical.-Medicti1 supplies sl~onldbe packed and distributed among sveral boirts in the patrol to rr~locethe possibilities of loss if one or nrore of the boats should capsize. f. ilrnm~r~~itirm.--Tl~e sbme prit~ciplesapply n s ~ s i t ha n infantry p:~trol, especially as to the smount of :rmmnnition which should he carried on the person. Because of the comparative ease with which it cnn be tmnsported with a river patrol, it might be advisable to carry at least one complete u~rit of fire in tl;e tnlin. Like the medicill supplies, the nnrrnunition in reserve slro~~ld be distribl~tcd tliroughout t h e entire boat flotilla, the security units. q. IZrrbion.~u . d gdley eqccipnmt.--See Chitpter VI, "'The Illfuntry
Patrol."
I@-17. Loading boats.-Aftel- all other preparntio~rs htivo been made, the b a t s , in order t o facilitste a n early start, should bc loaded with a s much of tlre ptitrol equipment and supplies trs possible the dug before the patrol is to clear its base. Each inan shcuuld be required t o carry Itis ammunition t ~ ? l r tind similitr equipment on his peimn, properly fastened at, a11 times to nvoid its loss if t.he tmat is cr~psized. A r l s should be carried within reach a t all times. Individ~ral packs are loaded in the boat the man will occupy;
14

SWM 10-17

used as si,at?; i r ~ bo;tts of tlm upper-river typo. Boats tlrey cwr asigrred to tlre kervice of svearity slrould bc lightly loaded and slroold carry o~rly the PP~SOIIIII g~itic ~ tilt! f I I I ~ ~ I 011 ! t1111tcliity. Other boats i n the flotilla slrotlld ctlrry tlreir proportioni~testrare of the :rrrtl supplies. Even thoup11 a s t ~ l q ~ ltrain y is irrcludetl equil>n~e~lt ill tlie flotilla, it is necessary to distribute sorne of the. supplies arnong the other boats tts a precautiolrary measure against t,lleir loss if tlia sapply h ~ s t :Ire s capsizerl or blvken ill rregotiatillg rongl:lr water. In ntrvigtrting fast water, boats slrould b e londed dotrrl by the llead for \~\-orkagainst tfre current or do\v11 L ) y tlrr stern for xork \%-it11 tlrc eorrerrt, so tlrrtt tlrc tleeprr end will al\\zays be nprorrerrt. 11s tllc boat t e ~ ~ d to s pivot. or1 its rleeprr cnd: tlte cnrrent will Ilolrl tlre boat parrtllel to tlre flow of the cnrro~tt.

swx lo-la

SECTIONIV OCCUPATION O F A RIVER

Par.

Pnee

The mission ........................................... Similarity to laud operation.. .................. The day's maroll.. ...................... Rate of moven~en Ilcconnaissanec alid seoarity Initial contact with the enemy. A typical ambush. . . . . . . . . The attack .................................................... Garrisoning the ri Defensive measlire Passage of obstacles....................................... Night operations.. ........................................ Supporting fom a . . . .....................

18-18 10-19 10-20

17 17 18 18
19

10-26

18-29 10-30 )I331

20 21 21 22 22 23 23 23 24

10-18. The mission.-The n~issions\\.hich iletennine the neccssit,y for the occupntion of a river line have been stated previously: t o provide a n easier and more economict~lroute of slipply to the land forces; to deny the use of the river to the hostile forces; to interfere nit11 enemy lines of conimunication which &reperpendicular to the river line; or to secure a n avenue of appronch to the hostile area f o r the establishment of a base from which active land operatfons can be con8ucted. Each of these will affect the size and composition of the force e~nployed,and the location of the garrisons established tilong the river. 10-19. Similarity t o land operations,-The occupation of a river parallels i n every respect the advance of a land patrol from its base, except in the means of transportation. After the initial base at the mouth of the river has been seized, a first objective is selected and patrols a r e pushed forward until it is captured. Reorganization takes place, supplies a n d reenforcements are brought forward, and the advance is resumed to the second objective. A third objective is selected and taken in t h e same u-ay, and so on until the river is brought under control. I f opposition is not expected and the mission is to garrison the river more or less equitably throughout its length, as in the case of using it as a route of supply or to deny it to t h e enemy, the advance may be continuous. The entire river force may

SWM

lo-20
OCCUPATlS P
A

BIVEn

lenro t:he original base as a body, provide(l enough boats are arailable, :md det;~chment.s are mtde as e:mh outposts is established alon? the rout,e. If opposition is tmt,icipated, or if the supply of boats 1s not sufficient for the entire pat~rol, the :tdrance will certainly be nxrde by bounds front objective to objective, wnd eventually the major pertion of the river force will be corrcent:mted at. the final objective where it is employed for cooldinated land ilnd river operat,ions against the enemy in hostile territory. 10-20. The days march.--8s witb I:md patrols, t,he days march should begin as soon after down as possible. This is f&lit&d by the fact. that most of tb0 supplies and equipmat may be loaded into the boat,s e&r evening as soon as tire rat.ions for the next 24 lmur~ hwe been renmwl. + A oonday halts sho~~ld not be made for the pnrpose of preparing a hot, nwd. Midday Iuncbcs may be prepared and will distributed in the morning although usually the ration sit,uation Unlc~s tactical corrsid~rations prevmt~, tbr not permit, soch act inn. days moveme~~t should be halt~ed at lexst 2 hours before, sundomn in order to carry out the MXSW~ security measures, make the crimp, mtl .feed the troops and boat. crems before dark. The camp should be on fairly lerel ground, sufficiently above the water level to avoid flgoding in the event of R rapid rise in the river during the night. I+xtts sltould be secured with R sufficiently long line to prevent their being stranded on dry laud b+xanse of a sudden drop in the water level, or being l~nlled under and smnmped beca~use of a sudden rise in the river. Bout. guards should always be posted OYCPtlw flotilla. N-21. Rate of movement.-The ratt! of movement will depend upon the type of bmt being used, whether propelled by motor or by hand ; t,he nntuw and condition of t,he river, whet,lw in deep conslmxt~ively calw water, or in the st,rong currents and innumerable rapids of t,he middle md upper river; and the need for careful reconnaissance. A motor flotilla may average between 60 and 100 miles :L day ur&r tlre best. corrdit.ions; a flot,illa. moring by hand power will a.verage from 12 to 1,s miles per dq. The rate of adrmee will be that. of the slowest boat, in the column. Regsrdless of the rate of movement, some word of the approach of the patrol will usually l~recede it up river, especially if the area is well populated. If the st,ate of the river permit,s, it may bo possible, and in certain situations desirable, to overrun tbr lwstil~ shore p&ions by utilizing the speed nvnilItblo to R motorboat flotilla. If the mission of the pat.rol is to drive the hostile groups out of t2le river valley, it may be better to

SWM 10-22

OCCI:I'.\-~IOS
OF

IIIYER

advance s l o ~ ~ lsometinles y, hy poling, i n order to seek out tire enemy by reconnnissance nrld engag6 1ri111 in combnt. Boat formations.+i. Geiter~rl.-E'or~~~atiolrs for a boat colu~nnadvancing aloug a river, either up or down stream, parallels in evely respect. a nlalrh foniration f o r an infantry patml orpr 1:111rl, :iud the sanlc principles apply. (See "The Infantry I't~trol," ch. V I ) . Tl~ere should be ail atlvance guard, a command group, a ~ n a i n body, : 1 co~nbator supply train, and a. rear guard. Tactical units, s ~ t c l ~ ;IS half squads (combat teams), quads, and platoons, should be assigneil to separate, boats so as to maintain fiwdom of maneuver and yet. retain as much co~ltrol over the various elements of the patrol a s l~osible. Tlre nuniber and type of boats vithiu the formation d l ~lepet~d u1)on the size a n d co~npositiono f the petrol and the nature of the river in which i t is operating. Eve11 ill tlre lover river vhere no opposition is expected, some security ele~nerrts should l~roceed aid follow t h e nlaiu body. I t r~onldbe a mistake to place ail eirtire patrol consisting of a rifle lato to on in a single lower river boat, or even to divide it into tk point of n lialf squad in ilrr upper river boloat, nud the re,n~ainder of the patrol in a single lo\ver river bont, if opposition is anticipated. To do so might im~nobilizethe entire patrol if tlre main h d y shoeltl suddenly be fired ~ipou from a concealed hostile position. On the other hand, i t \ ~ o u l d be tactically unsound to employ ouly upper river boats containil~g one squad each or less for a patrol consisting of a reer~forcedrifle company. This vonld restilt in an elongated column arrd a corresponding lack of co~rtrol. I f the nature of tht: river axid the type of boats available make such a disposition necessary, i t mould be better to ernploy the split column formation, described in Chapter VI, f o r large infantry patrols. 6. Type of boatn employed.-The elements of the adv:tnce guard, tbe renr guilrd, and Aank security units, as well a s the cmnmand group should be assigned to small, light, fast boats of the upper-river type. T h i s is especially true of tlie point, rear point. and commnnd group. Thia facilitates the n~oven~ent of the security elements and lwrmits them to adjust the. distcurces in the formation according to the t e ~ ~ t through ~ i n which they are passing without slowing up nnduly the steady progress of the main M y . It enables the patrol commander to proceed rapidly to any part of the columil where his presence is most urgently rtquised. l l e remainder of the patrril may be assijpcd to types of boats which are best suited to the tactical ~equirernents and the nature of the river.

SWM 10-23

OCCUPATIOS
017

A lilIllR

G. Distances in fot-matiorr.-'l'he clist~tncesbetween the elements of the coluin~n will vary ~ i t 1 the 1 terrain, the slze of t h e flot~lla, auil the to lnncl speed of movement. The principles involved are a~~alogous operations in which the troops are proceeding n l o ~ ~ fairly n-ide, ag open road. The leading elements .il~onldnever he out of sight of the next element in rear for more than a millute or so a t n time. IV11ere the river is straight and \vide, distances between the various parts of thc colu~nnshould be great enough to prevent the main hcly coming under machine-gun fire hefore the hostile position has been (liselosed by the swnrity detachments. Where the river is winding and tortuous the distance between groups should be shortened. If the distance between elements is too great each unit may he defeated in detail before the next succeeding unit can he brought up, disembnrked, and engaged with the enemy. d. Location of patrol cmrnnnder ilk co2uonm.-The pntrol commander's boat will usually irlove a t or near the head of the main body. E. Locatiolt of supply bont.s.-Normally the supply boat or boats should be located a t the tail of the main body. The rear echelon of the command group acts a s train guard. I n tlle event of combat, the train p a r d assembles the boats of the flotilla and the crelrs, and moves the train forward to maintain liaison with the nlain body as the attack progresses. If the rear guard is committed to action, the train p a r d assumes its functions to protect the column from an attack from the rear. I f the train is nnusually long, as may be the case when a patrol is to establish an advance base at the end of its river movement, it may be advisable to detach the inajority of the supply boats from the main column and form it into a convoy, following the combat part of the patrol at a designated distance. 10-28. Reconnaissance and security.-a. Nethodv of reconnuissance.-A river patrol employs the sa~ne methods of reconnaissance a s an infantry patrol ashore. (See "The Infantry Patrol," ch. VI.) Since the route of advance is limited to the river, it is often necessary t o halt the movement temporarily while small land patrols reconnoiter suspicjol~slocalities some distance from the river banks. 6. The culvcmce guard.-The advance guard may consist of a point boat only, or it may be broken into a point, advance party, support, and reserve, depending upon the strength of the patrol. As in operations on land, the function of the point is primarily reconnaissance, t o uncover and disclose hostile positions i n front of the advancing column before the main body comes within effective range of the

20

OCClTPATIOS OF . \ PIiYER

eneniy's weapons. Tlrc upper-river type boat i s best. suited f o r this purpose; it can be lrandled easily :rnd does n o t expose too marry men to dire surprise fire of an ambusli laid t~loxrgthe shore lines. The elenients of the advance. gaard should increase in strength fror~r front to rear so that, increasing pressure is applied as succeeding w i t s engage tlic liostile position. If tlre river is vide, the advnnw guard slrould enrptoy a broad front., with at least one boat near each bank. Tlie main body should proceed near the center of the river to reduce tlre effects of hostile fin from either bank. c. Flonk 8ernwiby.-(1) It. is almost impossible for men in boats to discocer n \cell-laid ambuslr. When operating in hostile territory, or ~\.Iie:i there are indications that combat is imminent, shore patrols sl~oulclprecede or move abreast of the udcance guard boats on ench bnnk of t h e river. Although this mill slo~vthe rate. of t.rave1, it is an essential precaution unless speed i s the. ~iiost. important factor in the missio11 of the pat.rol. (2) Navigable tributaria entering the route of advance should be reconnoitered and secured by some small boat element of the patrol ~x.hilethe column is passing them. d. M a x h ozrtpost8.-h1:~rch olrtposts should be established a t every temporary halt. This is accomplished by reconnnissnnce to the front and rear by the point nnd rear point, resepectively, and by the establishment of flank boat or shore patrols as necessary. e. Security at ~est.-Immediately upon arriving at a temporary or permanent camp site, bout reconnaissance patrols are sent u p and down ricer for n distsnce of one o r more miles depnding upon the nature of the river. Trails and roads leading into the camp site and suspicions localities in the vicinity of the site are reconnoitered by land patrols. Other precautionary measnres are taken as prescribed for i~ifantrypatrols. (See "The Infantry Patrol," ch. VI.) 10424. Initial contact with t h e enemy.-The init,isl contact with the enemy in river operations may be in tlre nature of a ~neetil~g enfi"gen~ent,with all the elelnents of surprise f o r both forces found in such contacts, or, as is more often the case, i t consists of uncovering his outpost positions. I n either event, once contact has been made, the choice of position and t h e time of future engagements will pass to the hostile force attempting to prevent t h e further advance of t h e patrol. I n most small war operations, these engagements will be i n the nature of a n ambuscade. 1&25. A typical ambush.-The typical hostile ambush will resen~ble those found i n land operations. It will be located a t a bend

21

SWM 10-26

OCCUPATIOS OF A RIVER

in the river in order to provide mitable locations for autonratic weapolrs to enfilade tlre adr:~ncingcoloirr~rof boats. 'The nature of the river mill be such thnt tlre bo:~tswill be forced close to one bank to negotiate t,he current. Along this bank will be located the main hostile position so sited that rifle aird autoim~tic weapon fire rill1 be directed a t the colunrir from tbe flank. Thc. terrai~rwill be heavily wooded to nfford cover and conce,~lmeiit. Under these conditions, the possibilities that tlre nnibush can be detected by men in bonts will be very slight. IJortages, rapids, and canyons nrny also be selected as a.lnbnsl1positioils in order to engage t h e patrol \vlle~lit is ~videly dispersed and ont of control of its conrir~ander. la-26. The attack.-Men in boats present a concentrated. 1-ulilerr~bletarget to a l~ostileform ashore. The hostile fire sl~ouldbe returned by tire weapons carried on t h e boats as normd armtunent. A few riflemen mity i m in such a 1)osition tlrat the,y (can open fire rvitlroot endangering t h e crew or other members of the boat. However, any fire delivered from a moving boat will be erratic a n d co~nparativelyiueffectt~al. Tlxe full power of the attacking force cannot be deldoped until tl~e troops are on shore rurd deployed f o r ttie fight. If tlre attack occurs in a wide, deep stretclr of river i n \vhirll t,lre boirts c m ~ be miu~e~ivered, i t may be possible to run past the l~ostilefire aird land tlre troops above the, ambush to take t h e 2bt.tac.k in t11e rear and cut off the enemy's prearranger1 line of retreat.. Tisuaily the ambush will he so locr~tedthat this is impossible. I n that event., the leading boats slro111d bo haclred toward the lrostile position. Disembarking, the. men in these boats take up tbe fire and hold the liostile force in its position. Those boats not under the initial burst of fire should be brouglit upstrenm as close to t h e Iiostile position as possible, the troops disenrbarked, and the attack la~~rrcl~erl fro111tbe fia~ikto envelop tlre ambush, overrun the position. and intercept the liostilo line of witbdra\val. Ordinariiy t h e patrol shonld land on one side of tile river orily. 111 some situations it may be desirnble or necessary to land on both banks, especially if the hostile force is deployed on both sides of the river. Tlris action i~~creases the clifi<>ulties of control, nod iuay result in inflicting casualties anlong friendly personnel. Once the troops are ashore, the tactics are similar to those e~nployedby regular infantry ptrtrols. 10-27. Garrisoning t h e river.-a. T h e loc~tion of the \vtrious posts to be established along the river is determined by: foreign settlements and investnrents which req~iiw protection; junctions of impor-. tant river-ways; locatiori of intersecting roads and trails; wpply
22

SWM 1 0 2 8

dunlps a n d reshipping points be.tween the lolx.er a.nd miildle rire,ra or tlre middle and upper rivers: nrrd tlre strmrgtb, aqg~~ssiveness, and tlisposition of the liostile forces. 6. Tlre stre~lgth, of eac.11 post. ~vill depend upon its missio~~ and t h e hostile forces in the area. Tlre largest forces should be located ai tliose points 011 the river \rhich are most vulnerable to attack, or fro111 which combat patrols can operate to best advantage? against hostile forces. o. The distance htm-een posts on the river is determilied by the existing situation. If tire llostilr fox* is active a n d aggressive irr be ~ ~ i t l r isupporting ii distance: ltot over 1 the area, the posts sl~ould day's travel upstwarn, fro111 eaclr other. I f tho lrostile fo~~ce is weak, i~naggl'essive,or ~ro~rexistant~ a distalice of 150 miles between posts of force. may not be too great a disprsirsio~r d. I n somo situations, it ,nay be necessary to estahlisl~ outposts o n navigable tributi~ries to the lriaili river in order to protect the line o f comrrrti~ricntions. 'nlis is eslx?cinlly important if t l ~ e tributary leads fro111lrostile areas or if trails used by the llostile force cross its course. 10-28. Defensive measures.-a. .Each garrison itlong the river ~ n u s tbe prepared for :ill-;wound defense. Wire entariglements or other obstacles should be erected, ~nachinep i ~ i s and other defensive wenpolls slrould be supplied, and uorrnal defensive, measures taken. Active patrolling by land and xrater should b e rnaintnined. Communications by radio o r other nleans should be establislied with t h e area headquarters and with other outposts along t h e river. Boats should be supplied to each outpost for reconnaissance, liaison, a n d local wpply purposes, and as a lnearrs for ert~cuatio~l down river i n case of necessity. 10-29. Passage of obstacles.-Obst,acles in the river, such as n a r ~.o\\-s, gfrges, bad rapids, aud falls, ~vlretherthey can be narigatecl or reqnlre a porl.age, a r e similar to defiles i n ordinary warfare ancl similar protective measure must be taken. \I combat patrol slioulcl proceed t o the head of the obstacle, a n d flank security patrols shoolcl reco~~noiter both banks of the river and dangerous commnnding localities, in order to secure t11e safe passage of the main body through the obstacle. 10-30. Night operations.-Sigl~t opert~tio~rs rrray be conducted : (1) T o make a reconnaiss:~nce. (2) T o make R search. (3) T o secrete small detacl~~rrnrts anil picket h a t s .

OCCUI';V!XOX

O F 1 ItlVEI1

(4) To send out a patrol. (5) To cl~iulge the location of a post,. (G) To avoid aimed fire from sl:olx and to avoid ronibttt. Night operations n~ust condmted by poling or paddling, never by motor, if secrecy is to be attained. Morelnents upstrean1 against the current at night. are extren~ely slow, difficult., and flrtiguing tu crew and combat force alike. They sl~ouldbe avoided except in the most urgent situations. Tl~ey have all the attrndaot difficulties of n nigl~tmarc11 by a n infantry patrol. See "The Infantry Patrol," Ch. VI.) On the otlinr l~nnd, night ~no~enients by boat do~rnstrexmwith the ccrI silently ancl easily executed if the 11ig11tis clear and if the rent ~ I I I be river is free of dangerous obstacles. Such 11ig11tn ~ ~ v e l ~ i eare n t soften pmfitably employed in river operations. l(L-31. Supporting forces-a. Infanby put?~ols.-Itiver operations often can be coordinateil with t,lie operations of infantry patrols if the trail net is satisfactory and such sl~pporti~lg tr001)s are available in the area. Such coordinated efforts shonld be employed ~rhenever possible to effect the seizure of important towns o r localities along the river, or to increttee the probability of inflicting a decisive defeat upon the hostile forces. h. A'~,iu,tio?r.-Aviatio~~ s upport is fully as important for the sucof river operations RS for the correspon(1ing land cessful conclusio~~ operations. For details, see Clmptrr IX? "Aviation."

SWM 10-11

TYI'ES A S D O l I A R l C T E R I S T I C S OF BOATS

(3) Ontboard motorl~oats are especially nsefol for security units with s patrol operating entirely with motorboats; and for liaison mid c o ~ n n ~ a n missions. d (4) Outboard motors purcl~ased for river opert~tions sllould he of the. multiple cylinder type and capable of developing at least 25 horsepon,er. Motors \vhose water intake is through the forward end of the propeller housing should not be purchased. They are prone to pick up too much sand, dirt, and other debris in tlle shallow Tvaters in ~vliich they often have to operate. d. Raw6ocrts.-Rolvboats will seldom be used in small mar river operations. 1)isabletl navy or large sized motorboats may have to be roxvcd for compnratively short distances. e. Padd2e.u.-l'addles are riorrnally used as the means of propulsion with upper ri\-er boats mlrich are not equipped wit.11 outboard motors. They niny be, used when moving against tlio curre.nt in quiet stretches of hl~eriver, depending upon the strength of tlie. current, and ~villalways be used when going downstream or from one side. of the river to t h e other. They are used a s ruddeix in boats of the canoe type. Because of their reliability under till conditions, they are part of the normal eq~~ipment of every middle and upper river boat, mtiether they are q u i p p e d with motors or not. f . Poles.-In swift mater, poles must be used to make headlvay against the current if the water is too shallow for the operation of motors or if the. boat is not equipped with a motor. In many cases, rapids poles can be used to assist a motorboat when passing througl~ and bucking an ~~riusrinlly st,rong current. They are part of the nonnal eql~ipmerrt of every middle and upper river boat. g. Tou~ing.-Towing will have to be resorted to when passing upstream through very bad rapids. Occasionally the overhanging branches close to shore may be grasped t o haul the boat along. Before towing a boat through bad stretches of water, it should be ~lnloadedat t h e foot of tlie rapid, and tlie load portaged around it. 111 some cases, such as falls or extremely bad rapids, t l ~ e boat mill have to be portaged also. I n going downstream through dangerous rapids, towlines n~ustbe nsed to ease t h e boat and keep it under control. 10-11. Influence of tactical principles.-Tactical principles will have considerable influence o n tlie type of boats selected for any particular river pat.rol. Security units should be transported in small, light, easily maneuverable boats, carrying one-half to a complete squad of men in addition. to the crews. The conlmand group requires

SWM 10-11
TYPES AXD CHARACTERISTIM O F nOAT8

a stnall, f ~ r s boat. t transported E l e m e ~ ~of t s the iliairr tK>ilymust as 1111itsin order to facilitate their entry into action. Supply boats y type t11a11 the corl~batboats. T h e msky be of all e ~ ~ t i l t ldiffel=~rt. ~lecessity for sl~eci will influerrce t11.ecomposition of t,lie flotilla. Eve11 in the. lower river, these tactical requirements xlray irect~sitate tlle employ~nentof some middle and upper river cri~ft;in tlre upper river sections, t,l~ey the. size of the. boats en~ployett. will i~ifli~ence

SWM 10-12

SECTIOX TIT

PREPARATIONS FOR RIVER OPERATIONS

I?!r.
fage

10-12 10-13 8 ................................................... 10-14 Boat pmmlremezrt.. ............................................. 10-15 Armament anrl ciluipment.. .............................. 10-16 J.oading boa 10-17

Introduction ........................ Organizing the river patrol .................

11
12
12
13
13
14

10-12. Introduction.-+I. Wl~en t l ~ clecision r to seize and occupy a rirer ronte bas been re;~c.lled, certain preparatory nleasures, sucll as of the organization of the force to be enlployed and the assen~l~ling boats :~ndtheir cre\\.s, 111ustbe tnken. I n inany respects these preliminriry steps closely resemble the organization of i r ~ f a n t ~ y patrols (liscussed in Cllapter VI, "The Infantry Patrol." 6. In tllo n~ajorityof cases, the occupation of a river \vill proceed from tlle coastline inland. If the situation requires t h a t the oecup:~tion begin near the head of navigation and work dow~lstroam,the diffict~lties of prepurntion are magr~ified,especially in the collection of the necessary boats, boat equipment, and native cren7s. The measllres to be taken, however, are similar in either event. c. If t h e river to be occupied is not already held by hostile forces, or no opposition is offered, the problem mill be relatively simple, provided suitable and sufficient boats to handle the personnel and initial supplies are avitilable. If t h e mouth of t h e river is held by the enemy, it must be seized as t h e first step. This operation does not differ from any landing agninst ojtposition, which is completely covered in the "M;inual for Landing Operations." rl. River operations a r e relatively unfamiliar t o our forces. They utilize types of transportation rvhose capabilities and care am compar8tively unkno\i-n to our personnel. The operations are conducted on routes of travel which are seldom accurately indicated on the av:~ilablemap, and they are executed over waterways of consf~ntly c hanging characteristics. The contlition of t h e water highways varies with the low or flood stage in the river anil with the part of t h e river in 'ivhich the h a t is operating, whether lower, middle* or upper river. Every opportunity should be given the men

S W M 10-13
PREPAR:Cf'lOXS F011 RIYCIL C)I'ElL%TIOSS

t o become vater-xvise and boat-wise, in order to hnild 111) their boat,handling ability and their self-confidenc*e. Preparations for river operations should coinrnence, therefore, as f a r as possible i n advance of the date when such operations are espect,etl to begin. 10-13. Organizing the river patrol.-;\Inny of the same principles apply to organization of n river pat1.01 as apply to that of :III infantry patrol. The size of t h e p:~troS is determined by the same factors, except that the nrtrnber a n d type of boats a.vailable must b e taken inlo consic1er;ttion. Indiridoal anrr:nnent, t l ~ e proportion of supporting weapons to he attachecl, tlre necessity for additional Offic<?I'~, cooks, medical personnel and siglal personnel, liative. glides, .so11 a n d interpreters are all consiclere~lin the esti~nateof the situa t. o n the same basis as for a land patrol. T h e principles to be borne i n mind are the same; the difference is that a river is used as the ave1111e of approach to the hostile area instead of a road or trail, a n d instead of riding aninlals or marching, boats are used. 10-14. Crews.-a. Wl~etl~er enlisted or native b a t crews, o r a proportion of each, are included i n the organization of the patrol clepends upon the types of boats t o be used, the nature of the river, t t ~ e availability of reliable nat,ives, and the general situation in the theater of operations. Very few natives \x.ho are good engineers and mechanics will be found in the usual small wars theater. I f t h e nature o f the river is such that only motorboats will be used in t h e patrol, t h e crews sllot~ld consist of enlisted men, with a sufficient number of natives to act a s guides in the bolr of each boat. Even these can be dispensed with if the patrol is ~velltrained i n river work. On the other hand, if the operations are to take place i n the midtlle a n d upper rivers, where innumerable rapiils nil1 be enconntered, and boats have t o be propelled by hand, natives sllould comprise the boat crews if they can possibly be obtained. The handling of sl~alloxr-draft. boats, such as the canoe and sarnpirn, in the upper river is an art not easily o r ql~iekly acqnireil. This is second natnre to the native who has been brought up in the upper river country; whereas, only a very few enlisted men mill be found wlro can learn to handle all types of river craft in all kinds of x~atttr. Every enlisted man who is detailed as a ~nember of a boat crew depletes thenumher of effectives in t h e combat personnel. The procedure relative to hiring native bout c,rews does not differ from. the hiring of native muleteers, and the same prir~ciples apply as with land patrols. Every situation must be estimated and decided uponits merits.

SMALL WARS MANUAL

UNITED STATES MARINE CORPS
1940

CHAPTER XI

DISARMAMENT OF POPULATION

UNCLASSIFIED

UNITED STATES
GOVERNMENI PRINTlNG OFPICE
WASRINGTON : 1940

TABLE OF CONTENTS
i11

Tlin Smnll lIrars &I:~nnal, U. S. Marine Corl)s, 1940, is pr~blisliecl fifteen chapters as follo~rs:
CHAFE& I. 11. 111. IV. V. VI. VII. VIII. IS. X. XI. SII. XIII. XIV. XV. 1XTRODUCTIf)N. ORGANIZA'PION. LOClSTICS. TRAINIXG. INITIAL OL'ERATIONS. INRANTICY I'.YPROLS. >lOUN'L'EI) DET:'I'.\CEIAIESTR. CONVOYS AS11 CONVOY ESCOR'I'S. AVIAT!ION. RIVER Ok'ERATIONS. DISARMAMENT OR I'OPULATION.
ARMED NATIVE ORGASIZATIONS.
MILITARY CO'I'ERNMENT. SUI'ERYISION OF ELECTIOSS. WITHDRAWAL.
111

SWM 11-1

SMALL WARS MANUAL

UNITED STATES MARINE COKPS
Crr.\i-re~tXI

DISARMAMENT OF POE'ULATION

I't,r.

li',ie

. ..

11--1

I 3
; i

t i

5
!I

CONTROL OF SOUIIC):~ O F SIIPPLY. . .. . . 11--9 M ~ a s u r r FOLLOWING ~s I~ISAR~IA~I\IMN.P.. .. . .... . 11.--10

~

11 I2 13 14

11-1. General.--a. 1)rtcr tcr the unsettled conditions ortlinnrily prevailing in a coutitry r~lrciringn nentsnl intervention, and the existence of ircnrty arms in tlre hands of the inhabitants, the disnrnlirrg of t h e genernl popnltrtion of that cinrntry is rrot only extrc?mc?ly important as a part of tire operation of the intervening forces hut. also t o th6 interests of the inltrrhitarck tlrernseIvtss. It is cnst,ornary in nrany undeveloped or unsettletl comtnunitiex f o r all of the rnale popt~lationnport reaching nrnturity, to be hz~bitrtullyrrrme(1, not~vittrstnadingtlrrtt. such possession is generally illegal. Tlrere is r logical reuson for the large nnunrher of wercporrfi itt the hands of the inhabitants. The iirbitrary political rnet,hnds which frqrrently re.. snlt irr revolution, nnd the lawlessness practiced by a large proportion of the populntion, is responsible for. this s t n k of rrffuirs. Thr, professional politicians ant1 the revoluticmary o r lrnndit leaders, 8s l well as their nrcmerous cohorts, a r e habitually armttti. I ~ g a institutions cannot prevail ngninst this distrosiiing ctmdition; persons *nil p r o ~ ~ r are t y left at the mercy of unscrupulous despots, until irr *If-

SWM 11-1

nIs2\n;\cn>ni.x'r ov

POPULATIOX

preservation the peaceful und 1:ixv abiding iinlvabitants are. forced to arm themselves. 6. If it hiis not been done previously by the intervening forces, t h e disar~ningof the people sl~ouldbe initiated upon t h e formal declaration of military government, and must be regarded as the most vital step i n tlie restoration of tmnquility. The disarming of tlle native popiilation of a country in which mi1ita1-y occupation has taken glace is a n imlxmtive necessity. c. One of the. i~iitiillsteps of an intervention is the disarniing of t h e native factions opposing each other. I f this action is successf~~t, serious snbseqneiit results may be averted. To be effective, this action lnust be timely, and t h e full cooperation of ivative lenders nlnst be securer1 throng11 the proper psycliologieal approach. The disarmament can be effected only t,l~rouglltlle greatest tact and diplomilcy. I t is only orre of several wccessix~esteps in t h e settlement of the local controversyl :tn(l znny agreenient effected must insure not o11ly ultimate. justice bat immediate sut,isfacticm to all contending parties. To secure this concession, tlle arbiter ixiust. have t h e coi~ficlenceof the nat.ives and must be ready, milling, and able to insure tlio provisions of thc agreement. This involves t h e responsibility to provide security not only for the natives ~vho have been disarmed but f o r the individu:ils depending upon them f o r protection. This iluplies the presence of the arbiter's forces in sufficient nun~hers to guarantee safety. d. Peaceful inhabitants, voluntarily surrendering their arms, should be gnaranteed protection by those forces charged with the restoration and maintenance of peace and order. Wore i t possible to disarm completely the whole populution, tdie military features of small wars would resolve themselves into simple police duties of a routine nature. Obviously, considering the size of the population, t h e extent of territory, arid the limited number of available troops, a n y measures adopted wig1 not be 100 percent effective. Hornex-er, : large i f properly executed, the native military organizations arid L proportim of t h e populace may be d i m m e d vohmtarily; many others will be disarmed by military or police measures designed t o locate and coiifiscate arms held clandestinely. These measures mill limit the outstanding arms to those held by a few individuals who will seek to hide them. I n many instances, these hidden arms will be exposed to t h e elements or to deterioration whicli in tdme mill accomplish the same end as surrender or confiscation. Although complete disarmament may not be attsined, yet t h e enforcement of any

ordinance restrict,ing t h e yossession of arms \\,ill result in the illegal possession of snch arms only by opposi~rgnative forces, ontlaas or bandits, a n d e few i~lllabitauts wlm will evade t,his orrlinance as they would attempt to do r i t h tu~yunl)opi~l:ir legislation. Cornparative,ly few of this latter class \\.ill use their weapons except in selfdefense. Thus the inhabitants are partially segregated at the outset of tlre negotiations. T h e disarming order \\-ill probably not iufluto give up their $'capons bnt. once the professional guerrilla fig11te.r~ such s.ource of supply itnd replenishn~entof w a p o n s and arnn~unition ~ r i t l ~ the i n country \\-ill be practically eliminated. 11-2. Estimate and Plans.-a. Prior to the issnarlce of any order or decree disarming the i~lliahitantn,it is rlecessery t o make an estimate of the situation and anal?-ze all features of t h e nndertaking, tlre porvors trrrd limitt~tio~ls: the advantages and disadvantages, mid tlleii lr~ake plans :xccordingly. The p l a ~ should ~s includr the fullo\vir~g provisious : (1) T h e lneitsures necmary to strengthen the local li~rrs. (2) The civil or military authority issuing the disarming order, or decree. (3) T h e forces necessary to enforce the order or decree. (4) T h e form of the order or decree. (5) T h e nlethod of pro~nnlgating the order or decree. (6) T h e menwres a n d stcpplementary instructions to place the order in eEect. (7) T h e designation and preparation of depots, buildings, and magazines in convenient places for the storage of the itnns, ammunition: and explosives. (8) T h e disposition of the munitions collected. (9) T h e xnethod of accountability for such munitions, incloding the preparation of the necessary forms, receipts, tags, a ~ ~ prrnits, d to be used in this system. (10) The arrangements for the funds necessary to execute the disarmarne,ut. (11) T h e designation of the types and classes of nlurlitio~~s to be turned in. (12) T h e e.xcept.ions to the order o r decree, definitely and plainly stated f o r the informatimi of suborditlates. (Slie~ialpermits to individnals.) (13) T h e agencies (civil officials o r military commanders), \vho mfll collect, guard, and transport the material.

S W M 11-2

(11) The supplelne~~tary i~~stroctions f o r the gnidnnce of the agencies charged ~vitlitlie esc?cntion of tlie order or decree. (15) Tlie instructions governing the mrtnufacture and ilnportittio~l of munitions. (16) The illstrnctions governing the sale nnd distribution of irlu~~itions ~nrlnufact~.tred or importeil. (17) Tlie time limit for eori~l>li:tnce and penalties r~ssignedtliereafter. 6. Small wars take place generwlly ill cou~itriescout;lining primitive areas mliere rnany of tbe inh:~lritantsdepend on game for tlieir fresh meat. Tbe peasants in the outlying itistricts itccordingly are armed with shotgons for hunting, as ~vell as for self-protection. Many denran(1s for the retention of such arnis Jvill be ninde oli this score and they slioulil be satisfied ill accorcta~~cr with the seriousness o f the sitnatiurl, t l ~ e justice of tlre request, a n d tlie olii~racterof the individual nlsking it. e. A feature of the (lisarrr~ing of the inliiibitants which is a sonrce o f difficulty and ~llisl~~iderstar~(li~ig is tlie question of retaiiling tlieir n~rtchetes,cotachns, knives, rtnd stilettos. Mnchotes in tlrexe countries are of two general types; one is for xvork and the otlier f o ~ , fighting. Tlie working machete is practically the only irnplenient found on tile farnls or in tlie forest; it is used for clearing and cnltivating lznd a s well :IS harvesting the crops. I t would be obviously unfair to deprive tlle natives of this general utility tool. It. is distinguished by its heavy weight, the blade being broader and slightly curved a t the end away from t h e handle, and without. a guard or hilt. Tlie fighting machete or cutacha has a hilt anil is narrow, light, arrd sharp. Sometimes tiorking machetes are ground clown into fighting weapons but these are readily distinguished. Directions issued for the oollection of tirms should contain instructions so that subordinates may be inforlned of tlre difference in order to insnre t l ~ e collection of these drrngeroun weapons: and to avoid depriving tlie peasants of tlieir iniplelnents which mean their very livelihoocl. Sin~itarly, one finds that the nt~tives are almost ulmsys armed with some kind of knife. They are used when packing animals and for all kinds of light work; they a r e often the only implements used in eating; they a r e used in butchering, in trimming the hoofs of their miimals, and for many other chores. Certain weapons are obviously f o r fighting only and tbesc a r e banned without question; the* am t h e stiletto or nlbrmw blade, dagger type of weapon. They have little or no cutting qualities b u t they are deadly.

DISAlthIAlIEST OF POPULldTIOS

d. The disarnling ordcr, or supple.n~entaryinstructions t,l~ereto, should clescribe these weapons sufficiently to ltroperly guide the subordinates who vill execute the order. They should provide that c~~tachas will not be permitted to be carried at any time; agricnle permitted on the pnblic roads o r in public tural macl~etesmill not h gatherings; stilettos will not. be permitted a t any time or place. e. Care should be taken to allon, st~fficient time for all inhabitants to turn in their anns, and opportnnity to t u r n in anns must be assured. I f sl~fficientt,inie is alloned, or if i n s t ~ ~ ~ c t i to tun1 i n alms are ons nob widely pnblisl~ed,a non1be.r of inliabitants nlay have arnis in their possession though ~villing to turn them in. They will be fearful of the consequences, and through their ignorance mill constitjute a ready field for recruiting for bandit ranks. This is pnrticr~larly true in remote areas. It. is therefore lnost important that t,ime, notice, and ol>port~nit,y be given all concerned. 11-3. Laws, Decrees, Orders, and Instructions.-a. 1 x 1 most countries, there a r e statutes restricting the possession of arms :utd explosives. As a rule these l n ~ v s are not enforced rigidly and even a t best are not wfficiently con~preliensive to meet t l ~ e immediate requirements. The laws and their enforcement agencies must be strengthened by appropriate measures to insure the effective execution of the measures inte~rded. 6. The first step in dist~nning the population is to issue a disarming order forbitlding till inh:~bitnntsto have in their possession fireanus, ammtu~ition,or explosives, cxcept ~ m d e r special circumstances to be determined by a specific authority. This order is directed to the authority cr.lio mill he responsible for its execution. It specifies that the prohibited articles mill be turned in to the proper officers of the forces of occupation, who will receipt and care for such as are voluntarily sorre,ndrred, but that such articles as a r e riot voluntarily surrenilered will be confiscated. It mill further stipulnte that after a certain di~ie1110 ille,nal possesion of arms, anmn~unition,or explosives will render the person apprehended liable to punishment. The details of carrying out this order are properly left to the discretion of appropriate n~ilitary authority. c. The official vVhohas t h e authority to issue the disarming order mill be indicated by the nature of the intervention. 1.11a simple a r e still in charge, a decree intervention where the. civil al~thorities might be issued by the Chief Executive, o r a law might be enactecl in proper form and sufficiently forceful to fit the situation. S ~ t c h .decrees have been issued in cmergeneies in the pnst and have proven effective. In case a military government is established, the mili25?.Y6i0-40--?

SWM 1 1 4
DISARllhlllCST O r POPI.:L.\TIOS

tary governor vr-ooltl issue t11c decrcc or o~dcr. Cnder nwre circuinor liawl forces might issue stilnces tlre coxnmi111der of the inilit:~r~. the disixr~ning order. d. T o give the order the force iund clinl.actel. of a public clocurnent~ i t silould be publislned ill al)prot~rintt~ oficial publicntions of the gosenn~nentfor the i~lfonnationand guidal~ce of the citizens of the country. This niet,I~odirot only gives the order ail official character but insures its prolnpt and leg:il distribution throupl~out the country. Tho order should be published in tlie 11:ltire langua,ge and, as nece,ssa.ry, i n the Ilangnage of tlre iirtervellinrg forces. Circunlstailces will det,ermi~le the time limit in which t h e prohibited munitions must be surrendered; after wliich date. their possession will be illegal. This will depend upon the ability of the nativos to comply before a given date, or tlle availability of the forces to rnzilie i t effective. T h e lnecessity for explosives required for the routine peneeful vocation of some inl~:lbits~~t.s sllould not be overlooked. Prollibitory restrict,ioins awtxi~rst their possessioi~ or use would lrnaterintly interfere wit11 ? So, in keepitndnst~.~i~l i i ~ l c lconnnerci:rl enterprise and ~le~~olopinent. ing vitli the policy of fair and liberal treatment of the natives, provision ir~nst be maclc for these sspecial cases. Before incorpornting i n tlie disilrining order : I I I ~esception thereto, the military autl~oritiesshould consider first, the condirior~swhich might result xundcr 1eg:tlized use of firearms arrd explosives by cerkain favored individuals (civil otrrcii~ls, land owners, etc.,), and second, the extent and character of supervisioi~that will be required to control their use and their sources of supply. Once these p o i ~ ~have t s been determined, t h e urcler shonlil be prepnreil to il~corporate the necessary ~m~visions. Tlie disn'ini~n~ent of that 1)ortion of the native population living in remote nild ln~vlessilistrictj should only be undertaken with :I full ,zppr&intion of the respo~rsibilities involved. Rax~clroverseers, mino s~~lieri~ltencI~?,~~ts, pl&ym:~sters and local civil aotl~orities,should be given special col~sitler;rtioni n the matter of arms ~ ) ~ r ~ n i tTl~ore ,s. is snch a thine .. as beills over-zealous in t h e nl:ttttbr o f ~ ~ ~ ~ I ~ I I I ; I I I Ii iV 11 I~ ~1Iit . i~of1(*11 : I ~ I V ~ - I I I J I,, I ~ ~ r,~*krc v r t i i i ~ ~ ~c~nc.rssi<~t~-: to rc.q~on,il~lr 11:<rtiv'i ll c ~ r ~ lteor >rvurc. tliei~ full roo1,r.rii~io ~ ~ ~ I I ~ ~ J ~ of i l l~ t11v ~ ~t11v ~ I I;I\vs. I I I ~ I I ~ 114. Manner of Collecting Arms.-@. When opposing native forces a r e operatii~g in tlre field, tlne i~lter~~eni~ng forces, if acting a s
:m arbiter, should institute ineasutres to secure the arms of all t h e
opposing forces by o r g a ~ ~ i a u t i o ~ ~ s to their disbanding.
Every
prior cl~deavorshould be 111adeto have the full cooperation of the leaders.

and to prevent tlrr esc:ll)e or departure of tnty s n b o r d i ~ ~ aleader te and llis followers ~ ~ i anns t h i n their possession. Disarming sliclr organdisbanding tlrerrr :~ncl providing f o r their return izations i ~ r ~ ~ o l v es I~onre. W i t h the twofold pnrpose of insuring tlm turning in of their $Inns and the retanr of the natives to their ironles, a price is often paid to incliviiluals for tlreir '\\.kapons i n accordance \\-it11 a sclredole fixing tlre rates for t l v:trions ~ types of fire;xrms arrd ammt~nition. , Ihis is a reasonable charge rigtiinst t h e native government and the money froin this sonn:e intrst be nssrlred before proceeding. Tliis ~)roceilnrt> m:ly be a sonrce of cl~k::lnery anti franc1 t o deceive. tlie antliorities alrd get luoney dishonestly. E ~ e r y precaution slionld be talierr to see tht~t iriorley i s paid only f o r the a r ~ n s of I I ~ P I Ireg1111trIy serving n.itlr tlre nnits a t the tinle of t l ~ u; ~ g r e e ~ n c ~ r t. I'rccaatio~ls x tnlien thtrt tlre :~rrtioriesaticl nrapnaines ilre n o t isitleil after lnlrst I tbc! agreement is in effect and that. the same inili\:idoals do not rt!peatieclly retilvn wit11 such riflrs for payment. 0 1 1 t h e otlrer hrrnd, ready money in sufliciet~tql~irntityfrom tlre local goveniment must, be :~\-:rilahleat tlie tinre a11cI place of payment agreed ol)on, or wllcre the forces are fonnd. b. I f p a r t of the native forces retriairt armed, the fiill benefits of disarnu~mentare not obtained, and serioas consequr?nces ]nay later develop. Wlren this occurs, some of tlresc snlall n r i ~ e d groups nlay take the field and continue their operations not only against the loc:11 governmeilt h ~ t also ngninst tlie intervening forces. This IXTJIII~ place the intervening forces in tin enth:~rmi;sing position. After lmving disanned the forces rhich might have been capable of co~rtrolli~lg the movement, t h e intervening forces may be rerlt~ireiltither to lrnlt the c1i;:lrrning ~ic;gotititions and again reanrr thow force,s o r selrcl ont i t s orrr troops t o take tlre ficlil ripinst these armed gro~rps. In other ~vords, to be folly effective?dis:rrnra~uent. must he yrnctic:tlly conrl~lete. 11-5. Collecting Agencies.--a. The follo\ving agencies nlsy be enlployed to collect firet~rn~s, xtnrnr~nition,exl~losivcs,etc. : Proviireial governors and local police i~ritlioritirs,p.articularly the co~nnrunal clri~fs, tlre chiefs of police, and the rurril policr~men. The xnilitwry forces of occupation. Special agents or operatom of tlre Force Illtelligencr? office. or the. Provost Department. The native constabulary forces. I f military government has been iiist,itutecl, tlre Provost 1)epartment may very appropriately be assigneil the task of collecting the

SWM 11-5

inunitions, t.he responsibility for the storage and custody of sninr, keeping records and submit,tilig necessary reports. I n other sito:rtio~iswhere a native constaht~laryhas been organized, there may h e advantages i n assigning tliis duty to that organization. 6. (1) When e~nployedas a collect,ion agency? the civil authorities a r e issued supplementary instr~ictions at tlre time tho disarlniitg order is prom~~lezted, stating explicitly the maririer in mllicll firearms, ammunition, and explosives will be collected and stored or t~irnedover to the military foi-ces. Tliese instructions ]nay be amplified where necessary by field colnmanders who will visit tlre \-ari(ins coniniunities and issue instrnctions to the local officials, imposing sucll restrictions as to the time and place the prohibited articles ill be s~lrrendered. Tlie civil officials may be required to make personal delivery of the collecterl nrticlcs to the nlilitary forres or to li1:tke report of same and the material collected periodically by designated agencies. ( 2 ) The success attained througll eniploy~nent of riril officials they display. depends upon t h e spirit and conscientiou.: effort ~vliicl~ Some who h a r e heel1 tliorougltly indoctrinated with the advantages of the idea will hare remarkable snccess; o t l t ~ r s n-ho consider the clisnrming o r d e ~ an nnj~ist. imposition \\.ill perfrrsm their duties ill a. perfunctory manner, and still others prill use the order t o promote dishonest practices, disarming some of the people and permitting others to ret,ain tlreir arms, for personal, political, or monetnq reasons. (3) The disarming of the inliabitmlts throng11 the intervening Fnstnimentality of the civil officials possesses many redeeming feature~ over t,he ut.ilioation of t h e armed forces for the same purpose. Tt is the most peacefill ineans of accomplishing the desired object, less provociltive, tind the least likely to ~ i g ~ ~ i antagonis111 or der create friction. It gives the pencefull 1a1v-abiding citize~rs,\vllo are worn out by tlie constant polit,icnl abuse of the past, tlie opportmlity to li:~iid over gracef~illytheir weapons without being subj~ctcdto what they might eonsicler tlie indignity of making a personal surrender to the military nuthorities. Misunderstanding will thus be avoided that might ohherwise occur if the armed forces are employed, because of a difference of language and cnstom. Moreover, it relieves the armed forces of the unpleasant responsibility a n d eliminates the factor of personal contact at 21 t,ime when tlie population views the ilttentiorrs of the forces of occnpation ~ v i t hdoubt ant1 suspicion.

c. It is not to ha xssu~r~crl tllat i r r l order as esact,ing mld far reachirrg it1 its effect :rs this dist~rnrirrg order will arreet wit11 \r.illing trrrd universal complia~ice. A s a couserlueucel it uray be necessary to resort to rrrorc stringel~l enforeenrent i n order to con~pel tire reoalcitraots to surrerrder their wea1)ons. T h e civil officials map it<?.directed to secure tho prohibited iirticles, or the a~merlforces may conduct a Iioosr-to-houst: seirrclr f o r collcetlled weapons. 110th nreans may be. e~uployerlsimnltalreously. Strir~geutmeasures nray be u~mvoi.tlirble arrd wl1~11yjrrstiliilhle, i r r irrr effort t o ~)rorxiotean oarly returrr to pence and orilel-. d. (1) Special agents or operators of the Force Intelligence office or the Provost I)epartme~lturay trace, or make collectiotrs of weapons. Tlreir irction is take11 on XI-lrirtis colisictered reli~tbleinfornretion and g e ~ ~ e r i ~ lly i~pplies to coruparativelp large qi~;trr(ities of firearms and ammunition held by certain prorni~re~~t iridiriduals. The success of these operatioris depends upon the skill inld courage of the agents who have to rely in a gretlt measure upon their o m initiative aud resources. (2) The 11rtellige:rce Service thl.oug11 special operatives may be employed to trrrce imports of arms a n d ammunition during a lioriod of sere,~al yeirrs preceding the occnpation. Crovernrnent permits and correspondence, custom house files, and other records will aid in ide~ltifyin receipts ~ of the% ~rrrrnitions, and a searcli for their strbsequent disposit,ioir nury be ur~dertirken. Deliveries of rifles, special lveapons, autorrlatics, n~achineguns, h o w i t ~ r u ,artillesy pieces, ammunition, ar~d explosives are noted and compared ~ v i t h issues, sales, nud expenditurw. e. (1) L1po11 ifhe establjshme~~t. of a rlative constabulary, this organization may assist t h e military forces irr the collection and confiscntior~of fise:~nns. These troops may perform valuable service irr this conrractiorr through their knowledge of the country and tlcrir familiarity with the habits of the people. (2) After s renso~lzrbletinre lins eli~psed, o r rrhe~iit appears t h a t the civil officials lrave exhausted their usefulness in t h e collection of arms, the military autllorities may issue nrr order to tlre effect that I after a ~ ~ V M date the military forces milt be responsible for t h e collectio~lof arms and the gatlrerir~g of evidence f o r the conviction of persons involved. 114. Custody of Arms-a. Inrlelrideti in tho plans for diwrruing the population must be the designatin11 of persormel necessary t~ receive and care for the turned ~ I I . Buildings aud storerooms

SWM 11-6
1)IXAIl~tA~II~:ST O F I'OPCLATION

suitable for t h e safekeeping of the \\-eapons, rnu~iitions,and explosives must be provirled prior to the actual receipt of the material; the volume of this niaterial may assume unwieldy proportions by the large increments arriving during the early days of the disarmament. A n accurate system rmist. be cleviscd to keep a conlplete record of everything received, xnd the nlaterial tagged and stored in sucb Inannor as to identify i t easily; the place sllould be of such construction as to preserve the material i~ndills0 t o nuke it secure. When material is received in condition wliicll n~akes its keeping dangerous, authol'ity sllotild be requested to destroy i t or to dispose of it otherwise. A frequent inventory and inspect.ion of all sucti rnaterial in custody sliould be made not only by the custodian official but by inspecting officers. b. Keceipts should not be given for weapons delivered upon payment of money, nor for arms and material confiscated. There 117ill be, Ira\\-ever, a nurrlher of reputable citizens inclnding merchants authorized pre~iouslyto deal in tltese docks, who wish t o comply >vitli the l:itrst order and t o m their stocks in to t,lle custody of the military forces. The latter are obliged to accept this lriaterial and must be prepared to deliver it when a legitimate demand is rnalle for its retuni. c. Instructions should be issued designating and limiting the agencies wliicli will accept the material and give receipts for same. There have been instances in the past, n-here sufficient time bas not been allowed f o r proper organization and preparation f o r the methodical receipts of arnls; in the avalanche of arms turned in simultaneously a t many places, junior officers, in good faith, have accepted the nlaterial a n d have given personal receipts for it without having a proper place for its safe keeping. I n the rush of official business, they did not demand a receipt from other officers to whom they delivered the material collected. No records were made of t h e ultimate disposition of the material. When proper authorities subsequently requested information concerning the final disposition of special material, the information was furnished only after a most difficult search. I n many cases, the material could not be located or its disposition determined due to t h e lack of records. d. If only certain officers are designated to issue receipts on the prescribed forms, and if the material is assembled by areas or districts, confusion may be avoided. Such confusion nlxy arise from junior officers giving personal neeipts in several different districts i n which they may serve during the disarming period with no record

SWM 11-7

DISARMAJIF.ST OF POPIJI.ATIOS

being made of the receipts. The receipts should be in standard form, and should indicate t,he name and residc~rceof the owner of the weapon, and t h e date aud t h e plilw of issue of the receipt.. The material or x7eapo11 sl~oold be propex-ly identified and other appropria t e remarks shonld be added. 'I'his receipt shonld be signed by the officer rtnthorized to receive t h e material. e. District Commanders should be required to submit monthly reports of all arms ilnd animu~lition collected within their respective districts. The larger p u t of the weapons collected mill b e obsolete inld in such poor condition as to render them of little or no practical value; those wliicll have been paid for o r confiscated map be dostroyecl by burning o r dnmping at sea. Those of better type and condition may be ret,ained o r issued to the native cortstabulary tritops. The collection of arms emnot be said to be terminated at any given time; it is a process which continues throughout the occuliat' ~nn. 11-7. Disposition.--n. TVherr rlrtrls Ilrtve been received frorn various sources, they are classified as follows: (1) Material for \vhich it receipt has been issued. (2) &l:tterial confiscated, collected upon payment of money, or othernise received. b. The custody of material under "class one" implies responsibility t o guard and preserve it for return to the rightful owner when Ian, o r decree. permits. c. The mttt,erinl under "class two" is further divided into serviceable, unserviceable, and dangerous material. The serviceable material may be of a type, caliber, and condition suitable f o r reissue t o native troops, local police, special agents or others whom it is desired to arm. The question of uniformity, adaptability, and ammnnition supply i s involved. T h e unse.rvice:tble material, or that. whose keeping is haeardous, is disposed of as directed; firearms a r e burned, the metal parts being used i n reinforcing concrete, or d i s p d of in other effective ways to preclude any possible future use as a weapon. Sometimes material is dumped i n deep water beyond recovery. Dangerous material, such as explosives, should be stored in special places apart from other material. d. Whenever any material is disposed of in any manner, permanent ~ m r d should be made of the transaction. Receipts should be s that which is reissued or transferred no matter in demanded for what manner. When material is destroyed o r otherwise d i s p o d of, a certificate should be made, attested to by ~vitnesses,which voucher
1 1

S W I 11s

I~I$,\II\I\J7$~:ST OF

I'Oi't-l.hTi(>X

I I st? I it ~ i i iirtriit ~ I)>t Iltrtrre. ~rrsrt,and qiinnhity. the iclerrtitp o f the nt;~tvrial rlivposed ( v i . 'I'ttis will pvnvtx a vrrtunble is evrr ~ l t ~ t r ~ : ~ r!i~ it 1 I1~I:I~VP ~ I tl:itt>. :rid if :anti \r-lrrrr irifo~~tr~:iti~~i~ I I I s 1 rr~xde all11 st~t~xcriirrl to by tt.ittlc#ars v.-lre~~cver ~ri:rtrrinl is ~ l t s t r o y ~I( I I ~ diij~ow<i ~f ntlrrr~si%?. Appropriate ~.t.rei[rt.isliorrl~i11c do~oarnlpd\rlrrrrevcr rnstrri:rl i s isrtcd in Care ttrr~st be t:rkr?n ; r c n ~ n l a ~~t-itll ~ r t ~ nnlers frr~lraIcipl~er:~ut,l~orit).. tllrit tro %rr*apoit rrr n~nlerinlis issunl or otlrt~rrirc clisp>setl of except iri ~ I ~ I i:~t~ror I IiI ~ :IJ tI~ I I~ ~ ~l, [. Great c:r~r.alrould tic est?rciswl it1 litx.pi~rgrrrateri:rl nhicll has i>t.t,~i rortfisc:rtlt~cl,or \rlioi;t> o\v11rlatri11is tt.trrrsf~~.rc~~I to rile govrrrirrtrlit. segr.tptc<l froru thnt rnat~riril\ ~ l r i r l i tkt, govctrrrncwt sirrrply lir~lilri z r crlstrxly. 'I'tir lattv~.is tlol s~rltj~v-t to d~strrr(.t i c ~ l r IIOV t~viiil: 1 1 f i ~ Ilt~ware . IIE tile c\-rr &1ret.wbrrt iiorrvt~llirIrtintt*rycrf :ti1 I I I I t S S ~ I I : ~ r f iI I ~ I I I I I I (Icsigli, ~ of lriit~~ricrll irrti~rt.nt, or of iilwcinl r~tlltc. >\I1 itrrh i i ~ r ~ t t i t r\TVII~IOIIS ~~l 0 1 . ilvtirit.5 i r t ~ : ~ t :It ~ ~n~clrli:ir ilitrrest a.l~enr*vrr tltt-!. i o n r ~illto 0111. coxt r , ( l ~ . 'l'lrt-). :rrnrtic* t l w :~ttr>rrtio~r rind ilrterc:it 11f tvilist(.d r~rt?tlor in ti;? civilin~r workcrs !vllo :l.ssiis irrot11111 tlre trlrtgalzirres or stoserc~otns rt.l.eip~ or stowape of srrctr rt~atcrial. Tltc!sc. trtrnsu:~l iwtic!lcs wlrii~l~ am i n yrentest tlc~tt:rt~(l :IS iitr~trcttirs, nrl~ltltc dispinitinn of wtrich i s rrro~st .telcw1y wlttcheci %riels~~,;r~ernl*.rt.d by s~~tnsr.~litir~t~:~, RI*L the verg rrrricleii tliict the cirigi~rrrlotvrrers wislr to 11avr rrtnrr~c~rl scxjtlcr or later. Blinor ittdi%rt?tions in ibc ilispc~nit ion of ~itsterizblreceived ;rirumoc+ ssriolts prnr~)rtiorrs irr t,lie niinds o f i he trutiv<:~ whictr ilte rtot r ~a t ll iri ket.11irrg witti tl~ctirar;tnr~li~rtpnrtri~tco. 11-8. I'eermita-I. 'llto nrilitnry :luilroritir.s tictermitre who shall in: rnr[~~?snrc:cl to iiislre aIrrrrii [x$n!ritx, to a l ~ o ~tllcg r r 1111ryissee t1rc.111. ariil itrry othr.r lat%irrent trpt,r~ictinr~s.I!lidt+r certain C ~ ~ C L I I I I S ~ ~ I : ~ , District C~~r~~rrraralars rrltd 1)iiltrirt l'mr~imt.Mi~rslrrrls I I I : I ~ Ile the dasigtrzrta11~rpct~riss. 111 srly atfor~t tlrc! process rrrlrat tx3 ceoultli~riitctlto ~ W ~ Y C Ici)i~f\ic,t I ~ or ovrrlulbpitbg aut,boritg. (krtriio civil otlicit~ls, iiuclt as ~~r.orir~ci:~l gorallrors, jtttlgt!a, nrid otllers ctsereiuit~gpolice to ~ ~ ( r at'rn*. ry Cert~rirtyt~>rirrits flrltctioori, tiray 1 x 3 ~111t110~ize~l rtrtl isstled which an, h b t i ~ l ~~ dh r ~ t ~ g t r o tl1t3 t l t country; some rrre isactrct wliictr IIMI gord for rnoro ttrnn one district or' jtrrixliction but. riot for the %vl~c~le cottlctry; in eitkier cast*. ttte tiigller !%~~t.ltority rtpprovitrg sr~tric? f irchtificrii the rcspcrnsible crtliccrs itr t.1~0 sevrrel sulmrtlimte jurirtlictiot-rs eottct.rrtecl. \Vht!n gmrrnitx i b n r rccj~rr.siecl, iilforrrmtion is ftlr,~tislrc%l (!orii:erttii~gthe riatioc~i~fit.j<. (:Ii:ir~cte~~ etrtnrr~erciitl artil politiczd ~~flilintii~ni;, tcciipatitrrr, and utldrtw ctf tbt! upplicnrit. itcitl the

12

SWM 11-9

i~ecessityfor tile grru~tiirgof the. prrsrrit. Officers iss11ing permits 111ust. exercise prent. care to the elld perinits be isiled only wlier~: real r~ecessityesists; ally application ~ ~ h i c h the appearance of has being m:tde sin~ply to enl~ance. the 1rrest.igeof the iildividrtal maliii~p it, as often Ir:tpperra, sllould ba promptly refuseri. 6. Permits should be issued on i~ stnnclard form wit11 a clescription of the ltersolr to whom issuetl: tope.t,her with the clrar:~cterand seri:~l t h e purpose for >vl~ich it. is t,o be nsetl, :111d 11umbcr of the firearr~~, the locality ilk ~vlrichit is to be carried. These permits should be irontras~sfeu:~hle ant1 slronld be reilelveil ench year or the. firearms irrust be t u r i ~ ~in d to t h e i~t~thorized agency. Hoitiers of lierinits should be warneci that the unanthorized uw, of their firearms will result in certain cliseiplinnry measnres hl keeping \ ~ i t l l the gravity of the offense snd t l ~ rpurritive. autl~orit,y of the oficial; this may iilclrrcle revocation of the pe,rmit and confiscation of t h e firearm, and e17e,nfir16 o r irnpriso~~~nent. or hotlr. c. Permits should be issued only for the possession of pistols, revolvers, and shotguns. The privilege of possessing rifles sl~oold be refused col~sist,ently. It should be excedi~lgly difficult to secure any kind of pennit. d. I n ortler to maintain a strict account of :111 arms permit,s irr effect, nll issuing ollicers should be direc,ted to ke,ep a record of all permits issued by them, copies of \r.hich should be forwarded to the district commander. The district commailders in t o m should submit. to Force Headqnarters, annually o r semiannually, a list in dnplicote of all permits issued witl~in their respective districts. I n adrlition to this a111lualor semiatlriual report, they should also render a nlor~tbly clmnge sheet in duplicate, containing a list of permits issuect nnd cancelled during the month. 11-9. Control of Sources of Supply.-a. As the military force is charged wit11 the preparation and execution of regolatiorrs cnncenring the possession and use of firearms, ammonition, arid explosives, it is only proper that it should exercise similar supervisb~nover t l ~ e sources of supply. h. The m i l i t r ~ yforces shoold control the entire legal supply of arms and ammunition. This control may be exercised either (1) by requiring purclrases to be made from official sonrces by the 1'n)vost. Marshal General and turning this arnmunition over upon rquisition to the District Commanders, who may distribute it to their provost marshals f o r sale in limited nnd necessary qoantities to persons ha^ing permits, or (2) certain merchants may be tmtllorized to sell
13

SWM 11-9
DISAR>IA>IEXT O F POPIILATIOS

munitions. If there a r e ~ilnnitions n~anufactt~ring plants in the cou~itry, they must be controlled; in ailifition, tlie introduction of mtuiitions into the country niust be restricted vigorously. c. Any person, or representative of a business or firm desiring to import tllcsc, articles should make r~ritten:tpplic:ttion for persliipment of arms, ammunition, or explolnission for each s ~ p a m t e sires, in mliicll application sl~oultlappear iri detail, the quantity a n d e imported, tlie use for which supplies character of the stores to b are contenrpltrted, the name of the firm from which the stores a r e to be purchased, ancl the port. from which they will be exported. .ill applicatioris should he forrvardetl through local Provmt marslnrls or other designated aathorities \ ~ h o slronld ericlorse the request, w~itli soch infonuation or recornmendation as \rill establish the character and identity of the applicnnt. I n case there is n legill restriction on the irnportntiosi of :trrns, tlie approrecl :tpplication shonld be forw~;rrcledto tlle oftice of the AIinister of Foreigi~Relations for reqnest on l,rnpc?r autl~orities t l ~ r o u g lrliplornatic ~ cliannels. rl. 't'liere ti:rw-e been t rvo ~netlrotls11scd by m:tri~~cs in the past to control the sale of r n ~ i n i t i ~ ~~ ~ s accnpietl territory. Either of in the thcse two ~rretliods sltown below allears to he effective. (1) Immediately upon tile arrival of the arms, ammunition, or esplosives at the port of entry, tho custo~nsofficials sliould notify the loczil Provost &Iarsl~al, who receives the shipment and deposits i t in tlre provost storeroom or other suititble place. The article,s rnay tlien be. drawn by tlie consiguee in sl~ch quantities or under such conditions :IS the Provost. Mars1l;rl may indicate. Except for an exceptiotlal shipment of explosives for some engineering project, the slriptnenis will ordinttrily be mna.Il. (2) I~n~rieditrtely upon the arrival of tlie approved munitions shiprrrent t ~ tlre t port of entry, the custon~s officials sl~oulclnotify the local Provost Marstial. This officer slionld notify the consignee, and with llirr~check (lie shiptnent. for its contents and timount. An enumer;ited rtxoril of the contents %nilthe amounts shonlcl be prepared by tlie Provost l~arshal, one copy given to the consignee and the other retained by tlie Provost Marshal. T h e sliipn~entis then tiirned over to tl~e r o r ~ s i ~ l r after e, pay~nentof all duties and with the written check should then rcpprovnl of the Provost Marshal. A mo~~tlily be n~acle by tlie Provost Marshal of a l l tnunitions stores in the hands of the approved sales agency; the sales agency making rt m o ~ ~ t h l y report of all sales (on individual approved p r m i t s ) to the Provost Marshal.
14

S W I 11-10

DISAR>IhXIEST OF POPDL%TION

11-10. Measures Following Disarmarnent.-cz. Even after the population has beer1 effectually disz~rrned,energetic lnetlsures must L w trtken t o discourage or prevent rearming. Some plan milst be evolved n.ithout delay to nl:ilie it inlpracticable or dtinge,rous to procure firearms illegnlly, either fro111 \vitliin or m-ithout the cout~try. If the existing laws of tbe cowltry prohibiting possession of arnrs are sufficient in theinselves, tneasrlres should be taken to mitke the111 effective. To the extent that authority is delegated or assumed, additional or new laws should be put into effect restricting tlle posse~ion of firearms. This I:~ttermetltod can be applied only if ~ n i l i tary govcnnnent is estnlilidled. 111 issuing these laws one must bear in ~nindthe responsibility ass~unedby the inilitary forces in enforcing tlie Inns atid guafiuiteeing the. security of life and property. I f tl~erebe remote sectiol~s ~vllevslaw e~lforcerilentis clifficult. concessions due to t h e limited number of the ii~ilitrrry forccs, c e r t a i ~ ~ nniy have to be made i n order to permit the local inhabitants to protect tl~enrsel~es against the lavless clen~ent. 0 1 1 t h e other hand if the la\r-less elements remain in t h field ~ in numbers greatly in excess of the military forces, specif11considerations may make it adrisable to provide means for :i.rminp a certain proportion of t,llc reliable ttnd responsible natives, to conlpensnle i n a degree for that inferiority in i~umbers; tllis should not he grejt~dicialto the other law-abiding elements. Sometimes this action n.ill greatly discour:~gethe lawless factions. b. The lnilittiry fon:es, or 11:ltire constab~ilaq, in conjunction nvitl~ tlie customs officials, shonld be particu1:krly :tlert along the coast and illegal entry of munifrontiers of tlre occup'ied country to pre~~eiit tions. Where a native const:~bnlarye,xists or is later established, a portion of s~~clt organization should be co~lstitnted a coast guard, equipped with fast. boats, to prevent s u c l ~ nrlns heirig smuggled along the coast and rivers. Until such a col~sti~hulary is constit,oted, 11 unit. of our own lnilitary force.;, adequate i n sise and equipment, should be estitblislied a s soon a s aetire inten~entiont,akes place.

SMALL WARS MANUAL

UNITED STATES MARINE CORPS
1940

CHAPTER XI1

ARMED NATIVE ORGANIZATIONS

IiNITED STATES
GOVERNMENT PRINTING OFFICE
WASHINGTON :1940

TABLE OF CONTENTS
Tl~e Sln;tll 1\';11.sM:LI~LI;I~, C. S. AIal.i~~e COI.I)Y, 1940, is
15 r l ~ a ~ ~ t as ers f~~llowi.:
C r r a t ~ r ~1. a ISTROI1I:CTIOS. 11. OItG.iN15A2YI"IOX. 111. I,001S'l'ICS. IV. TKAISISG. V. ISITI.\l, OI'ElLBTlOXS. VI. IXP\AXTItY PzYl'ILOIrS.
IJB:T*\(:EiAIES'rs. \'Il, ~ 1 0 ~ A - T I ' : I )

~)~~l~lis i l ll ~ecl

X. XI. SII, SIII. SIV. SV.

RIVER OPERrLTIOSS. UISAlil\lr\llH>ST OF I'OI'UIIBT~OS. AI<>iB:D XA'~lV1~; OI<GANIZ.~'PIOXS. 3IILIThltY G0Vh:llNMEXl'. SIII'EI<VISIOX O H ' EI,ECTIOXS. \\'ITEII>l~An"\L.

SMALL WARS MANUAJ,

UNITED STATES MARINE CORPS

ARMED NATIVE ORGANIZATIONS

Par. . . . . . . . . . . . SECTION I . GENERAL 1 1 . ORGANI~ATION OF
~I,AIIY .............

I'npe

12-1
A

to 1 2 4

2-3

CONSTAB12-5 to 12-18

. 12-19 to 12-23 111. OPERATIOXS A NDTILAINING--.. . . . . . . . . . . . 12-24 t,o 12-26 IV. ~ ~ U X I I , I A ~E'ORCE~ Y

5-15 17-19 21-22

\'.

C I V I I , AND

MII~ITARY REI,.&12-27 to 12-28

. . . . . . . . . . . . . . . . . ~ r o w s a r. p.
V

23-26

SWM 12-1

GENERAL
1':tr.

Ihxe

Locall armed forccs Uniicd States i~ifervcwtioo Rcstoratio~rof antlrovitg io luc;kl eovc'rt~nkr.ut..... Eol'~n:ltiolluf 81 ~(111~t8ll~l11811'y ~~

12-1 . . . . - 12-2 12-8 12~4

~~ ~

1 1 2 2

1 2 1 . Local armed forces.-ill nlost sr,ve~,cign stattts, t,l~e. execntive autllority is enforced by tire rnttiolial 111ilit:lry forces, national fr~lres,and organized reserves nnrler the control of tlie state. I n :~rldition,tilere may In. an organized militia and police forces under tlie. control of political subdivisions of the state. Police forces are i~or~nall y rnaintainetl by in~tnicipalities. Thi~seitr~nedforces represent t h e nntionnl-defense forces of t h e state and the i~rmeclforces employed to preserve peace aiid order ~vithinits borders. 1&2. United States intervention.-a. Wl~enthe domestic situation of a foreign country is s~iclltbat it is necessary for the United States Government to i~ltervene,tire national and local armed forces of tlie country concerned are usually powerless to suppress the domestic disorder or enforce t11e lams. At the time. of intervention, the armed forces of t h e country will probably have disintegrated due to defeat by insurgent forces or because of desertions. I n some cases, t,ftn armed f o x e s may be engsged in action against an insurgent force, whose operations have created havoc and destruction throughout tire country. Due to t h e magnitude of tbe domestic disturbance, the local police authorities are osut~llyineffective in the suppression of Ia~vlessness,and may evai have ceasecl to function ent,irely. Upon arrival within the foreign country, the armed forces of the Unitcd States Government immediately become responsible for the protection of t h e life and property of all tile inl~abitantsof the foreign country. I n order to discharge this responsibility, it may become necessary for t h e United States forces to assume the functio~ls of the national armed forces of the foreign country in addition to tile duties of the local and municipal police. b. I n assisting any country to r e t o r e peace and order, it is not the policy of the United Stntes Govern~nentto accept permanent responsibility for the preservation of ~mvernmentalstability by sta1

SWM 1 2 3

GF.NERIIIJ

tioning its armed forces indefinitely in tl~' foreign coollntly for t11a.t purpose. The Uiiitcd States forces seek to restore domestic tranquility as soon as possible and t o return the nol-mnl functioi~sof government to the country concerned. To accomplisl~this, the TJnited States Government will usually insist n p o i ~ the establishment of an efficient and \vell-tr.~ined anned native. force, free flnin pditic:rl influence and distatorial control. 1 2 4 . Restoration of authority to local government.-Having assurned the obligation for tlie restoratiorr of dornestic t,~urqnility within the foreign couirt~yconcerned, the obligatio~c is fulfilled by the nse of linited Strltes forces. l'here is a l a ~ present the oliligntion to restore to the foreign country its orgi~irici ~ s t i v c defeii~i;irrand la\T-e.~~forcement powers as soon I t ~ i l i 11:~s t 1)t:cn securecl. 'llle orgn~izationof an wileqrcatc armed r~:~tire o r g ~ l c i z t t t i is an effective. ir~etl~otl to ~>rcveiit f~lrtlle ~ distitll~~ba~rces do~r~estic :~ftel. t l ~ e interrention has ended, and is one of the most importa.nt functions of tho iiitel~entionsince. the TJnited States arnlecl forces nltly have superseded or usurped the functions of armed forces of the country concerned at the beginning of the iiiten,ention. It is obvious that. such :ilnied farces inust be restored prior to withdrawal. l B 4 . Formation of a constabulary.-a. I 1 1 t h e case of smaller countries ml~ose national and international aff:~irsa r e of lirnitea magnitude irnd whose finances support only a small budget, the defense functions of the country and the police functions within the country can usually be combine(1 and %signed to one armed force. Such a force is tormtvl n 'Lconstabulary." T h e constabulary is n nonpartisan armed force patterned along the line of the military forces of tlce United Stnks, with mcxlificntions to soit local conditions. The legal authority or a p p i ~ v u l for the formation of such an armed native orgnniet~tionmust e~nanatcfrom soino person o r body empowered with snch so~.errign right. b. T h e uutt~orityf o r format:ion of a constab111a1-y may be R decree. of the & , &re 01- de fucto Chief Executive of t h e country in cases where, w. legislatire agency does not exist. I n such cases, the authority for a n y law enactment rests with the Chief Executive alone, who legz~llyhas the anthority to issue a decree for the establishment of anned forces for his go~ernment. Provision is made for the appropriation of the necessary funds from the nationill budget for mr~intenance of the constabulary. c. Authority for t h e form:ition of a constabulary may be granted by legislation initiated by the legislntive body. I n such cases, the

GF;iV>;lLAI,

existent armed f o r m of the col~ntry concenled are legrally disbml~led :tnd the new constabulary force Lm.fully created by ~nodifci~tion of the orgarlic law of tlie country. Provisioll is n~;tde f o r tllr appropriation of the necessary funds from tfie ~latiollalbudget for its mailltennuce. d. Authority for tho fomration of $1 constabulary may be t h e i~sult of a treaty betwee11 tlle IJnited States Crov'rnme~it. and t h e country concerned, providiug for creatiou of sucll i t consti~bulitry. The treaty r~ormallyoutlines the powers and limitr~tionsof the organization aucl provides fluiils for its mai~~ten:n~ce. Often a treaty betmeal the t ~ r o governmeuts will :~lready exist, granting authority to the Ur~itetl States Goven~nlent to intervene ill the domestic affairs of the country concenled whenever t h e latter is unabie to control domestic disorder \ ~ - i t l its ~ i borurrlaries. ~~ I n such cases, tlris treaty is usually the basis or the al~tllorityf o r tile creation of nev armed forces \rit11i11tile coli~ltrgconcerned, either through the executive or legislative agencies of the, State, or throng11 the powers of a military governnlent set u p witlrin the country concer~ledby IJnited States forces. e. Authority for the formation of tlre constabulary may be t h e msult of a decree of the military eorrirni~nderof United States forces in cases where a military g o ~ e r n m ~lias ~ l tbee11 established to supp1a11t t h e local goven~ment.. 111 such cases, the n~aintei~ance of tho eo~lstnbulary is provided by means of appropriation of local revenues under control of the military govenlment.

SWM 12.5

ORGANIZATION OF A CONSTABULARY

I'm.
Plnniii~rgare~rcy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
. . .

Page

12-5

5
fi

1,ocal emat.ive la

6 7 8 8
9

Supply aud eclililnrrel Itecords alrrl report*; Firtnnees.. .

. . . . . . . . . . 12-17

Military courts .......................

12-18

9 12 13 14 14 15

12-5. Planning agency.-<I. T l ~ eestablislli~~g of a constabulary is ~~receiletl of :' planning g r o u p to draft t h e by the appoiut,~nent neces7:lry pl:uis for its fonnntion. T h e initiative in t h e weation o f tho constnbuk~ry cle,volves upon the United States forces, since it has assnrne(l tlie obligation to restore lam enforcement nnd defense forces to t h e colnitry concerned prior t o ~ i t l ~ d l i t > v oa f l Ur~itedStates forces. b. 'rlre pl:tnning group, or t l ~ e ~nnjority of the meinbers o f s u c l ~ a group, t ~ r e IISII:LII~ drawn from the military m d navibl forces of tl~e Giiitexl States (:overn~nent ~\.itl~in the c0u1111.y c o n ~ c r ~ ~ e T d. he st!lrction of tho plar~ninggroup from iunollg officers of tho ITiiited States forces tllen in tho coui~tryis advisable since such officers will nor~nallybc inore f:~milinr with existing political, economic, geographical, and psycl~ologicalcondit,ions. 111addition to such members, it irltiy bu i~dvisableto select, officers 1d1o have had prior experience in constabulary duty in other countries. 12-6. Approval of plans-After t h e pltinning group has completed its plans for the organization of the constabula.ry, the plans must first be approved b y the proper officials before tile constabulary may l x considerecl existent. Arnong t h e officials who approve t h o plans are t h e Chief Executive of the local state, the diplomatic rep-

SWM 12-7
lll:~~.\xIz>\'~-r<lY [it.' '\ r'~~ss'r~\i;l'l~:\l:\rtw~~lt~o t ifr rti113 T.71iitnlStntcr n r r r w i i t ~ <to l t l i r forc.ig11 r<rurriry ill <,I~I~I:%I~ o f 111~~ (j11itf31t S~:rIt,s c*81iwr.ilr-(l.ttt~. ;.PII~(I~ riiit.:~I <itlic,~r f18w1%cqn*r:~tir~g rritllirr tlrt* fr>reig:~(r)rttktry co~rcer~ir.rl, tire St>rr?ti~ry 8>irc>!arycrf Statt,? tlrt. ( i n ~ g n w o f tl:r iirtitt*d Statex, o f file XRYJ, ~IIC i111rl tlrr. I ' r f . ~ i ~ l r i ir,f t tlrr* I i r ~ i t e t S l t:rtvs. \Vlrrrr a l c g i * l l ~ t i v rlxrtiy vxibts, t l l r a p l ~ n ~ r . ; c i l ~ ftilt. I r g i s l n i i i r ~ot tire fc>r~:ig~~ m ~ r i i \ t r y(.I~I:~ i i I l i r l . \V~IOII 8 t l r i l i t ~ ~~I~I,UII~II'II~: ~:~ l~ns iri*t,rr c.st:~t~lisliorl. o111?t h e ; ~ [ q > r ~ r o v: f ~tlii. l I'tiit~brlStn11.s I-XI-ctitivt-, Ii~giilntivr~, :IIIII ~li-]>:~rtri~r~ 1rg1~11ritbs rit:il i s
r t ~ q ~ ~ i r e ~ ~ l . L2.i. 1.0c:tl creative 1arv.--.-.Illctrtlt8r t l i n t tlir c n n s t ~ ~ l r ~ t lI n I I t : I y ) In*
o f llic iricnl gorr>rllrncnt, i t rrinit tllc c i r ~ ~ s t i l ~ l it~ ~i.i r l ilt t r r j i-~iitr.iiri~cur In, k g i i l l y r ~ i t z r l t l i ~ l i :c ~~ r l lc l providtvl \rill1 tlli. I I ~pI~ ~ ~ r v1 t 1 ,~~~sr.c~itc% r i t s fiirl~~li(~ils 111 . 1 1 1 1 8 .l:rw n r (Ievrt'~~ ~ ~ ~ t : ~ I ~ l tiit,, isl~ c ioi ~ i~ ~st~~lii~l~~ry. tllr're i l r o r ~ l ~ IBIl 111~tii1i11~ pr~)visio~ s14ti11gf(1r111tIi15, ~s t i t t t l ~ ~ ~ rIIL~ ity tlic in c1r111.r tliat. r ~ ~ i l i i l oif ttli~b~ ? o i ~ ~ r n : r l1st' i<l~ ~ v c.c,r~itnl~r~lal'y t l r ? r(t11st:11111l:~ry IIIII? v r r t i r ~ ~fl y rr~ fro1112111t,icr:1ticor p r ~ l i l i r : CI~II~~l trr~n l . i l l i i r ~t111: <r,~rtttry i ~ ~ r ~ r t ~ r l i 'L'lnx r r l . In%\. or ~lrvrers-;hc111111 8t:rtc (I(,firiilely tlr11slavifir rllltiei. Itrnt thc~ cor~st:il~r~l:rry is l e ~ t r l l g ~+reln~%vrrel to [)t.rforlll. 1 2 ~ 8 .U nited States creative 1nws.--/l. 'Slio plarrs fcrr thi. r ~ s t i ~ h !id~rr~errt o f a ~:I~IIS~IIIIIIIII~~ w i l l ir~v:tri:~Iily cirr11:titl c<!r?:rirr pr(~visicrr~~ rr*lativn t o t l t n c:rnylloyo~errt.of rra~trrl~ciw o f tlrp ih1itt.d f3tntc.i nrrue~l S I ; of t i r e j)rcq~i'ic(l COIIR~II~III:II.~ f~~rcys officers o r dirrq:tii~g I]IP:I~S LI~K,II its i l ~ i t i r f~rrmntioo. ~l 'I'll(* C ~ a r ~ s l i t ~o ~fl itliu o ~ iIJr~itt.ilStrrles, , St>i.tlon 0 (H)? 8tatvx: "YIP title o f n n l ~ i l i t y slr:tll In, grnrltrrl A v t i r ~I l~ ~ r t~y tl~c i;niti?tl Stt~tr..;; arltl r l o pcbr~srrrr 11olili11g :rtriy iilfirn clf prirfit. cl trust r~r~ilc:l. t 11c.m rlr:~ll,%vitllcrr~l, i l r c * i.crlisc?rrtof tlrr <Zt~i(rrcss,arctbpt c,f arty p r ~ w r ~ ut ln ,~ ~r l r ~ r n er)ffire, ~ ~ t , I I title ~ o f :try kirrti w l t ~ ~ t ~ v fror:~ er In ortlar 1I1:tt IIII~III~M~~S ~,t fl l c nrly kiritl prir~ri.,01. f ~ t v e i g nslalf:." ~(t l o r srtcl~ Il~liIc.rlStrrt~tsfovrr III:I~ar?:rq~t offire, i ~ r c l l ~ c l i :c.r~r(,l~llitrr~t c d k ~ . , fro^^^ t l ~ t ? f orl!i(tr~ ~:oiirrt r y ~IIII~I'~IIP~, i t ii: I I P C ~ ~ R S I I ~ t ~I1111 tliit COIIgn:s.: o f tllr: ['~litrrl S t n t t y r ~ l r ~ il%!cifil-: t niclttority hg Inw. 'I'l~c\ ~ rlcr,r.;.rtry Irtrv for ssrsitv wit11 tile roristakriil:ir.y is tlrntvrr 1111 I I t1~. ~,l:~rrrriltg p t,rrp, z~tr~l, after. s~pl,r.or,rrl,is r,lr!sc:r,lerl to t l ~ v <:irrtgre.;s for ttl111rir1':tl 11.v ttrt. I'rt:si(ler~tof ttle ITrtitctl r*linc.tnr+!t~t rlrrtl sr~liscclr~c~rlt Stnlts. Srrclr uotltority tnrty In! irrch~elctli n u trtonty ta:t.wcr!n itre 'I!r~itc!cl 8tntc.n and t.he etrifrrl ry ca~tcsrr~ril. h, Siocc! a l l treutiitn o f t I l e Tiaitecl States nro rnt.ifier1 only by tlir? l i r ~ i t e tSt11te.rSr~nute,w l i t t ~ o r ra t el.inn 11yt l t c 'louse o f Ilr!pres~!ntntives, i t k~t:i~rilc.s trecessitry to snrri:t n %sIjnrntel a w nl~prirvc*d t ry bollr il~,riu.s (rf (:or~greiis, over1 tt~oirglr a rrtlto~.ityf o r s a : n ~ k ~ o wf t,lic U r r i k ( 1 Stntc.s

< I F .\

<'~~s~~'.~j;l'l..\~~Y

r r c i r t t l r ~ ~ c . r ~ r i s i a l ~ ti!:ry l~lar In. ~y i ~ i c l t i ~ i iii r i l l r t - irr.at?-. W11er1 get1e~r111 I : I I % 1i:ts - 11ev11:~Isv:itlj C>II:II,~P(I I I ? t Ire Ct,t~gr(:ss of ~III~ Ur~i$t,<l r f~ r t. l; l r I't1iti.11 States f~ttr,r,s 1~ sr.r.st, ir, liirS1:ites 1~1!rt!1itli11:: ~ t ~ t ~ r ~ r lcn n : c , . ; o f tlrr forraipi~ vci1tntr.s ~ . ~ ~ t i r r ~ ~ r~ ~~ o ~ iv re w lr. i f i r1511~ i s ; ~ r l t ~ t ub lr r.~.itr~irc*cl. 12->). C:t>mp($%ition .-....(r. l r ~ i l i : ~ I li 1~ 1c . ~ otIk~c*rs of t t r ~ ~OII.S~ :LI~III:IY~ at:<? ~ ~ l c v t n ~d r f i v r - r :ir!il s 1~111islccl nitw (ttst1:111y c ~ t ~ n l i f i + I!~II~~~~IIIIII~S~tl I I II I I ' ~ i t cS l t t i i t : I I I . 111 t i r f ~ ?1 . 1s t111x ~ i < ~ ~ t ~ c ,sit11:11i(t11 sli(, I~~~ tr ~ ~~ ~ t~ Ir II p I~ tS iI l 1111, I I~ ~ t* ~ : l tS i w-IC I~ II 1.tr.r.; o f tlii, COIIS~ :r1~111:1ry 11tr.11rl-ici,rcrficir~~~t in tllrtir d~rtirbu.t111. I'r~itr>tl ~l:rce ~ t ltlntivc- olTicc~r.i. Stirte'.; r!fli~.rrr o f flrc c r * r ~ s t : ~ f t:I~G, ~ ~ l1: ~ ~~~ 11). 1,1!lis11~lIIII'II of IIII! I 7 i r i l t l d St:tte.s for^<\: : ~ p l ~ o i t r t ras d Ofllvcrs IIII(I r~flic~,r.i rrf 1 1 1 1 2 c ~ o r ~ s t : ~ t ~ usltcritl~l l a r y 11i. :1rerlit111ilo t u tltc Irw:11 g o r r n r IIIIII I I tlnb ~ l r l t ~ l i t i i * cs r ~ t a i r l r ~ r r ~~s'i<x~ti:ll rl for : I [ ~ ~ > . q i tCi o I ~ ~~ s i t r ~ i l ~~ ~r III~ i r( r I 1111% ~ t .I : r: ~ i~ t ( ~ l St:~tes I I ~ fofv(%s. 'r11(,y IIIIIS~. I!I%. ~tlr?.rii:;tlly fit t c ~ a . i t l ~ i t : r ~ i: da r i l ~ ~ 1lt11y ~ l ~ ~ in t 1 I l l s f i r l d IIII~ sltor~ld he 11rofi<ir>t~t ill I:III~\I:I~(< o f t111- q e ~ t r r ~ t r I;IJIICI~~IU(~~~, y A ~I-IIIY:I~ t 1 c I :~ I i i o i s s i t ~ I I I I ~ : IrI It ~ r i ~ ~ ~ Tr he ty . s11011lcl In. I~III,\VII h~r thc.ir f : r < . l f ~ n ~~ l lntiorrsl~i~ rind ~s. s l ~ c r ~1 ~ 1 1 l, dirr %~III~I~I~~I.S w i 0 1 111~ r~+.~~iri~ <,f ti~ 1111% . ~ ir ~ ~~ % l ~ : i ~ ~ iol f: itlrr: ~ ~ v<i~trttry iv ro~tI.~!~IIP~ I I I s I I I I I l:i111 r i I I I Thcy s l l y ~rrofc~ssior,illlq.1111y OIIII~~I$IP~ to I*SP~II~I,, t h o s l ~ o t ~ tscr l d e ~ l ~ ~ c . n t i o ~ rntrd \-:iri~~~l f ~ ~ n c l i o11111l. r ~ i tht.?: w i l l Ilr c;rllr~el 111jot1t o ~ t t t r f o r r r ~ . C. N:ilive lrr>oltr IIII~~C* 1111 1 1 1 ~ ' t ~ l i r t o e IJIT~~III~!~'~ l
o f t l l o (.e>r!st111111I &*;crict* i s rot. cit~trl~i~lsol:\.. R ~ ~ i . r i ~ i t iis r tc pa
r r i r i l orr t l ~ r o t ~ g l i t ~ r i ttrc r.olrt~try, ~ t r , I tlic? rlr:nirrd p ~ % m ~ t r r is ~ c al,qi~ir.rcl ?l by erllitiiing ivlio otrly tI~o?c? volurrtc~~~ r s pos.;1%ss tlte rr!clnir;il~ cl~~rrlifi~:atiorrs.
c , I'~:IIIS itr.iL r r ~ ~ ~ for c l i . tilt. ol~elat.iotr o f rt?crlritdt~lrnts.
S1.11ni1ls irr :icat111~111ic ti1111 g o ~ i ~ r t ~ t ~ s ~~ et tl ~ lj r t1 ~1 ~ lr t 3 ~ c to ?r ~ i l ~ ~for ~ ~~ t~ ~1~ 1c 1 il s t1wre~~I sot1111~1. ( . ' < ~ ~ : s i t l i ~ r : ~ IIIIIS~, ~ , i o ~I*(! ~ give11 t o (11+>fitr~risttir)rt 13f : I r~rt*eIie~~l c l ~ y t : u ' t r ~ ~ t ~I r ~I t .wilrrc! I e.;lsc.;, :r rorrst. gtrt~rtlmay lxr r i q ~ l i r c ( l , 'I'lifr trra~lic:rl i l r p ! ~ r t r i r s r ~ l 111ie1 lhi* r ~ r : ~ spllikrll t :trc! illclrtclc.tl i r t flre conc:stiibliiil~rrs!r~t, r stiil~ulnr>l r t r g e r ~ i n i ~ l i o ~1':!1rly r. o f a s c b c ~ f~cl ~ trnirting <rtll~rlitlrrtr.x f o r c c r t ~ ~ ~ t ~d is ~r oi r~ t l~d n t ~ c r ~ i~ re r t l ~ cIl~orrght. lt rirrll c ~ t l l s i ~ l . r\r.t~ticlr~. l'lle c:st:d~lislrrr~etrt.of na:h :t a:hcn~lw i l l p r o v i c i c orelerly ot F t l ~ o~ x ~ r ~ o r r r of rt~ t lll s l i n i t c a l Stutvs fnrci!s n t i l i ~ ~ * e l ntplrcrrlle~~ inititilly to o~%<rtr tlirr e(1niitrrb111t1l-4.. It nlso i n d i e i ~ t r s i r t tlrc, lric111g l v lYoit,c?ct States (io~e.t?urr~rrenl. I~II~ c!rnrnctrt t h e nrlt ruir;tio raotives of Ill(. intlitratcw its iittonliort t o t u r n orrol. Clrtr conli.ol of t l ~ e cc~rrstul~ul~ to ~ry t111, lrciil g ~ o v c ~ x ~ r ~ah i~~ tliu c ~ ronrlic:at rt ~ w ~ s s i b rrmtrant. ln
frtr<;t~ tin e
:t
tl118

SWM 12-10

I'L-ic!. 1)nties and powers.-.#,.'l'iw i m l i c c ~tiiitic-s Fcvrrrwrl?. perf o r i ~ i t * titt ? the- o r ~ : i l i i r rili!it<t~-?t i t ~ I l I~II-:I~ i ~ , <st'r r~Irc% ~ ~ 1.utr111~ry ~ ~ <<JII~ ~ l:i~l'lit'li g ~ t :,t s ~etr~i,t~ l tIy i111, o ~ . g $ ~ t ~ ~ iz ~t~ ~~ ~1l s t ~ t 1 ~ 1 'J'Ii(1 1 l : r rv y~ . ~~i~t:tI~r~l:c~y i s tht. n i 1 t i 1 ~ r r n l - c l t ~ f rf~lr.~,t~11~~ o~ f t i t 1 7 t,rrirlrt ry n r l i r c n ~ t - i :ti111 l n l s pn' fc1r111.1njIic.t- i l t ~ t i c :it111 , ~ ~ : i v i I ~IIII~I~<BII>. h. 'I'lrr, r i i i l i t n r y ~lutic-;i'f tlrt. v < > ~ , s i : ~ i r ~ t li:o ~n r? ii . i t o f ti111 dr>fi*11.-1. IP tilt- 1,4,111itt.y t ~ g i t i r ~ s nutsi<ltx t r ~ g g r i , i s i i ~:tri<l i i tha s ~ ~ l r ~ w w sof i oc !l ~ irI I i s l t r i t I I I I t t r i l 1 i i 1 i~f i h n rorit1tr.y t t r e i i i t ~ i F t ~ r ~ iii ivrr ~ tia. t r ~ ! r i r , t r ~ t ; i t ~ o~ f ~li t. t ~ r r ~ r i c orili-r. l f,. AIIIOI~~ tire {~i>li,~i* ~Itttit~ of s 1111-~ ~ ~ ~ i s t ~ t :1rcs l ~ i11e~ ttl~ ~ ~ rri ~ ~sy t~11ti011 (ifs t i ~ t ~ g g l i t $tti,l t x i l t i * . ~ t > i ~ rhft111> ir<>l i ~ ~ i l * ~ ~ x ? : r s:ilc-. t i o r ~;1ri11 . c,ti?t(?dy <if ZI~IIIS, ~ t t i ~ ~ t ~ ~ i tIIIIII ~ i t i~ r> s~ pl :c ~t ~ i ~ i Iw t i s >rIkt> < ~ : i t [ > ~ ) \ \ ~ i ~tri ~ ~ tirrt3st i ~ l ! ~ t ~ ~ ~fwr i~~ i r il fr r> ~~ tc x t i ! ~<)I' r~s Iw:rl l:i\vs. ~rcat. <11)1y 13f tilt> Y C ~ I ~ I ~ ! 1~1rt. :I~S,J o f i l l f * . t r ~ r r i l i ) r i : ~ li r l ~ ~ l i v i s >IIXI i~~t ~~ ts tit~i~i~~I ~t r is l i it~i 1 ci :~ r r~ gc .~ wit11 I tl~cs( ~ r < ? t c v t i o ~ i~ I>t.t.sotis lr i r l t c l [~rojzert!. I l l i , 1,01r/ro1 o f pl.ii(ll~s. 1111~1 I ~IIIIII I ' v i t I t 1 i 1 : 1 1 1 i 1 . T l r e iv11st:tbIIIIIT ~ ~ r o v i ~ g11111. l i ~1Is fc31. v ~ > t i ~ 1%1:1(.i*-. lg ; l t i < l +~l~(.tor:tI r t ~ ~ ~ o r it1111 ~ i l s ex, I r i g I i t I L tkanls u u d vttx )~lrrr:iTy I cllrt~li~fll:tl<t~F. d, 'l'lle c i v i l d ~ t l i c ~ i,F s llr!: ~ ~ r ~ r t s l ~ t l , t r lia ~r~ y e l t ~tc l~ lc i *~ , I i s t r i l ~ r ~o t if ~ t t ~ ~IIIIIIS f11r i S ~ i sp:tyr~~c.itt of c i v i l I ~ I I ~ ~ ~ \ < i ~ l l ,v r~ n~ i t~ ly si ~ ~ :LY~:>IS x ~LII!~ tt16: clis~rilitrbiiitt<,f I - r c ~ ~ ~ ~ ~ l~.gislr~tivca. tivir, ;rr~!l j u d i r i i t l notices. \Vlu*rr rerluiwcl, tlro corisirtl~nlrrrycrptanltcw t l ~ l~ it:rvi ptl r t lic~uu* i111c1 l i f t w ~ v i r ~ g irc~ 11y IIII.;IIIS o f il r ~ r i t s g l ri:rnt, I I I K I I 1 1 t 1 1 1 t r y rti:ly I i s IIIII~~I 1I 1I v i s i r I i r t i i i t i . 'rtti: c o t ~ i t i ~ l ~ ~ ~liity ~lirry I,t, i r s s i p ~ ~ t ~ lit ~? titsk I I SII[~I.V~.*~OI~ ~ (11' 1111. ~ < ~ t i s t r .iro ~~ r! io f rililds i l r r ~ l l,ritlx(+s. (~'~*IISIIS ( ~ i ~ r ~ ~ ~ ~ sti1twvisi11i~ i l ~ t l i ~ ~ r ritf . II~PIII s:t~rit,ztti~~r~, 1111il nlti~r~ti in11i r ~ r c c l .i~iiircil o f tvl~.fifrtro~* n l t d t t s l t . x r : ~ l ~ ls ~y i r~ t c ~ r itt ~ ~ , :lrrcli~ig ;rir i r ~ l t lr rtcli<i c . ~ ~ r r l i i t r i t t i c i t t i i t r li i i t j : ~ l s ~ 1% r i1li.111111.11 21111(111g 1111! 1:i~il t111ties of ~III* ~~i~~ist:~I~i~ 01i11,~ l ; r r y . riril cIritic,s :rrt3 1 1 ~ ~ s. rr[~i~rvi+i~~r~ o f rreipllt.; i t i i c l II~I.:I!~II~.~.S, t.I~e,IPII~I~~I~CIIICII~. (if 1111rlt1n tlrlrl ( I 1 ~ 4 i i r ~ i : ~~i~gtiltttic t~ sr . q ~ i l ; t t~ c~ .~ i~ ir~ + rt q ~ f i o r t s OII t11e ISI, o f p~iI,lic, f$~iiils, %II[KTi s <,f t l l e O ~ I ~ ~ I ~ I I I I I~~ . ~ k lf i r l l ~ l i c t l :lr~tl I 1.1~1)01.Is t r f : r p t ~ i c t ~ l t r ~ cc~nilitiorts. t~itl
IP.11. Sine of force.--,4ii cl~.li.l'ii~irtir~g t lrn
sirr.t~gt.11 o f tlrt- c.ott.ittt\,. ~llnry fi~r(.ti, i t i s I I C ~ C S S : ~i ~ o~c.orisidt.r c t ~ ~ . v f r ~ thrr l l y il<~rirt.stic sitcratic~ri itr i ~ a o tc.i,ritcrri:rl l~ rlirisioi~ l u ~ r t i c ~ ~ r l i rtl~r: rly o f t l l t ' c r n r r ~ i r y rr~rl~.c~r.rtc<l, x i t n i d i t , ~ irr ~ tile ~ril~cil)a citi19.; l nn<l sc8iipt~i-L,;, , lht\ .i!!.<vrgtlt o f :lrn n~c[uil~cI f o r nnr. Ica.:~lity ~ r r i r y im e n t i r e l y r ~ o ~ i ~ t z t l r u l i cleti~t*ltrrcct~t try itratlr~~~rintcr i ~c.rt,c~xsirqr r i r i : ~ ~ t n H t ri irr t r l l i t y . F a r l o i s ttti~t,.ctr~tciri l ~ t , o tltti d ~ t e r l n i n u t i o n o f t h e sttrc!rtgtl~ 01 1\11. cc~~liititl~rrinly(. alrr t l i n o ~ g ~ r r i n

SWM 12-13

r~itt;\x~z:vrios 01:

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('<>ssrr,xf:I.r>,$ttv

111 e ~ t : s l ~ l i s l r ian11 n ~ nlaintnitrirri: :in (%rgrrriizatiorr r t f :1:11i\-o trxnlpi. a~trrrrrl!tsshr,:rl<l 1%: i.rt:r~i+:ti, i~rrrvitfi? Irr!ttc~- t.loll~irtga1111 s11i~lt~r irt~cl ~r:rrtict:larly 1,c:tter focrrl t\t:ul t~:~t,ire, ~:ivili:tt~s of i11(~=&.tr\e stxial I : a T l ~ i i s dc~rirledly:ill irnlx~r.fxrrt mrrr:~lt: f:rct~lr. 'rlre tq~ti[~rrr$!r~t. of tlrc,, ~ o s ~ ~ t : ~ I ~ i : r~ ~ov(~r11t~11 t l ~ ~ r ~ - liy tlic type, < i f st!rviw ml~irt.cl. 0Ftc.11 tliiTi~rvnt. types uf ~~qr~i~i:rlr:tt :are r!rri[llr~yt~rl iti m r i 011s I,n.:llities. I,. In itrtirry t:nerttries, tire ~li'itinrtivc: ulrifonrr o r ( 1 l . e ~01 ~ r~xtivo trq~rps prior to itrtr~rrr~rlti<,rt b!. I'riitr~d St:ttr,s f<~lr.r%s i s lilivly t o IE of t i t,y[)<!. rc:ore :~tl:rptt:,l t o l > ~ ~ ~ . p<-:trcT~rl t-ly rt~ilitnr?- rli.;[~l:ty o r ctureniorly tltt~nto con~l~:it. 111 arlrrc 1.rtsvsl tlrv nnifrtl.111 i s of a tyl)o ~lrr.;.-" niiltirt tlttr inr:~rrir~g of t,lr:rt c:tnnot, be ttrrncxl :I "distir~i.tivr~ the 111111.s of 1,artd 'Ckrrf~re. 'F11t~e is :I r~:ttrlr:il i ~ i v I i ~ ~ i13ri : t i (111 tlie [JIIS~of i!tritctl St~ttt!sfortxs witen orgarrir,irrg a r(~~~rt:ilt~tl:rr~y to orittit tilt. t r < s ~ [wit11 , ~ :I ilriiforrrt siori1:lr to tltitt o f thi? I'riitra~l 5t:rtcs fc~tctbs, ail11 xligltl. rrto~lifi~.at ir,i.~s i n tl~i: (list i~tcti\.t.orr~nrnt:ritc,trsttllu r g f clt~tl~itty, irttcl desig:~. Arry irt~iforrrt: ~ i l ~ ~ for. ~ t t tht. ~ i l~ O I I S ~ : I I ~ I I I I I ~ SIIOIII~IIn? li~tit:~I~le f o r 1111% C O ~ I I ~ RiI ~ ~. tr~ clitr~rrtit: l C I I I I ~ ~ ~ ~ lilir:ly O I I ' ~to tic? ~ ~ l l ~ , l l l l l t ~ ~ r l ~ l l , c. 'Tlrtr orprrric arrnc:tl forces of t h e cwlntry rrrnp Iravtt l r r n orily irtdiI~t!n!rrtly :rrrra!tI. Srrclr wraljorrs 11s t11c.y 1111'ir: itw likely t o it(: r ilrr(., to cr~n~,lrssnr.;i in I I ~ I ~ I Y ! ~ Ilioa.evc.v, .
iliotlcrn in n [ m i ~ t:uir~lit,io~r, weapuxrs :~vct ~ H C O I I I ~ rrror~t II~ :~(,i~t*ssil~l~:. t o :ISI c i ~ r t r ~ t r i ~ ~IIII! s ,
10 tito
Ir,st~r~!~l cr.rwt,s nn a rc.>itrlt of ni<xlc.rsr rrrars pnwltrction. Sr:elr ~1.trrs
SIR DIY iit gwxl vo1111it.iorr R I I L t ~~t:rit~wl artit reimtrcrl t o t 1 ~ :r:orrstal)rtl a 9 after i,krn clisrrrnrtrraer~t of govt!rnrllr*,rrt,;tri~l ittxorgclit fon:es. I'hrnn f o r nrrtrinp tlto c~~nst:rli~rl:tt~y sltoitlrl t,rrktt ill111 consi(lcrrttior~rtll ttr(1b:rtil6! t:~sksthat rrt:r.y tx?, assigttt!cl, as ivr:ll ns tlia c:~~~at~ilitirrs of
1-110IIXHI~IS irk tlto crr~~~lcrymi!rrt of t.ttt~vilrio~rr t,yp$'e of ~ I ~ I I ~ K I I It I~.
r n w L,c> advier~i~le 111 I I ~ I I It,lict CIIIIS~:I~IIII:I~~ ivitlr \+'CII[)(IIIH o f ~liil;!rt~rlt t~p('& .:tali(!, n11i1 i r t tlillt:rurtt pro[ur.lic~trsEFOIII tire I J T ~ : I I I ~ C :I~III~IIII~~II~. of tltv Urtilnl Si:rIc:s forces. d 'Titer(? :tvn tltr.1~3 rnlc~th~~lh; for srikisisbi~~g 1110 C O I I S ~ J L ~ ~ I L ~ I TIIR I~~)'.
fir& rrnct11otl is 111: the org:lnizt~t.iorrof gt!1:rrr.rrili:t(*.;*;nr8a t t110*~, [roititx
~lll$IV! ~ltfi~i(!llt, tllg~t,bl('r10 r r ~ t r ktht? ~
1lli'titl~I
trO0Ei.S 1 1 M (/lt:l~t~~t!fl fo~rsiblc. TI:<>mwod rrrethod i8 t o i~orrrrit.iirdividrtuls t o strhsist
Llrctrr~xc.Ivasuporr the pnyment of trrr ~ulecgttutc! srrii.iiijtt.~~c:e allow-
rtricn in uddition to tlrcir ttat~oul pay. TIro tllivcl nlc?th~nlis tlrc
sul~aistc*nco irf p w o n n e l try ceont,raet wittr civilisr~cntrtr?,ictors. 'rltc
ration B I I O U ~ ~11otild ~ I ~ I ~~~ M J itx~r~(rt~~ic:t!d in orilers.
The p ~ y c l t ~ ~ l o g y
of rirakit~g tlru firtior! rrllonrrrxtrr thn srmr f<,rp n e r u l mct~s,subsistcnrcc

1 1

SWM 12-15

II!III<~~~II~ nf ikyi11P:IS<~S. IIIC ~;III~II:I~I* o f III~, <YBIII~~~, rS~ ~ ~ i c ~ * dlitrtld vr~c~,l

:~lru:rys In. ~ - ~ x t [ l l ~ y c v l . 12"-1S. E'inr~nces.---a. 1Vlic.n pl:ilrtiilig tiri. cre:tti~ilr o f : I mr~stnl*r~cr y 1 1 1 i 1i s r ~ ~ i t ~ t r s21l l y lriry, fii1xr1ci:ll S~:I~IIR OE ilir ( . t ) t i ~ ~ f f r ~ n l r ~ rt11:rt v ~ v i l~ l II~IIII~IICI) I l t ( 5 sIrc~11.gi11 of t l i ~ t ~ ~ ~ : ~ s t : ~ I81s ~ ~\ r s id: l~ r y : I F llic* :~~,qrri*iIio IIC r ~ SII[I~~~I*S for SIII~I $1 f<irr(x. N'IIPII t l w ~II~~,PS~II~,V f 1 1 I I n i : i t i s i i i~ ~l~~r: t11:1t i i i ~s11r.11 t~ FII~IIIS k ~ v :~lI(ittc~ fr ~ilt r t ~I l r c t 11:11ic111til I r ~ ~ r ~ s11y ~ r ]n-~*%i~l~al~ti:tl ry <II*,.I-C!Ior 11). 1111. l v p l s : ~ ~ r c l i i r <rI ~ [ t l ~ n I c y i s l : ~ f : ~o r if~ tlrc i.(lrrlitry c o r ~ n ~ r r ~ c v Fl l, i n ~ l s :I~I> 81 ll<ittc~tl ~YOIII t lie? ~I>YIT~III~S I t ? tI1t1, r l t i l i111v.v g c ~ ~ ~ r r i r r rirr c ~IIIos(~. ~rt rastri $s11c~rot i l t . r r r t ~ . ; l : r l ~ ~ ~ li:sr ir,~.g:rr~i~,~.rl ~~ (lllrirrg tile* IPIIII~(' of : I ri~ilii:~:.yg o v c ~ r t ~ r i t ~ n r t . ~ ~ i : ~ t i o Ir r sI i1lrli1111111 :1n<1 l fr t c l rl .~ <YI:IP~II~I~I~:II~ I ~ I : 111' I~ 1lil1iv:rlt t o o l ) f : ~ i l ~ 1101 . ol~ly n ~ : ~ i r ~ t t ~ ~ ~o ;r III>I~I~I~SI, :~tltrii~~isIr;~ :III~!I~I~~I) livt~ is r c ~ ~ ~ r t f iw r~ YIII,II ~ f l : t l i ~ ) t ~ ~ c I>rit. t~~rt, :11+t~ I~III~ I<> i l t ? fit<d 111111. i t 1 i11os1 ~~IS~:IIICIY. 1111% c o t r ~ ~ t rw yi l l 111ix-IS t i ~ I I: ~Ix : i i l ~ ~ l I ~lcI I I I 1111' ~<.rkr.c.ity o f ~IIIII~S is iili14y i v I!(\ tile c<!:!uqiinfrccL rif IIII+~::IIII' ~~(~o~~ ~1t1111itioits c i r i ~ i r dl119t o #1 l iv s: orv , ~ l c ~ s ~ t ~ i of i l ~I tIIV ti~ ~t~ \~i111~~~~ t( l l t ~ lltc,, lr12rst1ry liy i i ~ ~ l i v i ~ l ~ r n l s 1 1 1 . gn!trp% . : t ~ c l t l w 1:rc.k (if :I!I c , f l i c i ~ ~s ~y~ stt ~ ~ if r o~ r Ill(. cr~lloction :it111 c~if11ir111 o f t t ~ x t ~* L~I I ~>IISIII~II ~ <III~~I*s. i , . 111iti:llly. 11 I11rgt1 1,:rrt o f t l l t r ns\.c,trlrc nf tlrc. c o r r n t r y einerri~e,l I i~vcc~i.s:~rilg In, tl~\\.i,tc~~l i o i l t t \ fii~nt~r.iixg o f tlrc c.c~ristalrril:~ry. I I ir1ili111: I I ~ I I I I of I f1tr1(1s II~IS I I I . I i! ~ I ~ It I l r ~ t . i for ~t~c 1110 l c~.rtnlilislt~~tt.i,( of 1111. (.o11si:r1~111:1~~, i t is I~CI'I'PS~I~Y 10 :li;,sltrn tlrrtt, tlrcl :IIIIIII:I~ 111. c1i111'r ~ ~ ~ ~ t ~ i :tll(atrt~t*~~t'i crtlic : I Y crritfirrrretl, ZIIIII t11:~t.tl~estr a l l ~ ~ l f r r ~arc? ~ ~ i lgirtvr s l11111gt~t. Ill(! trigl~esl l r ~ i o r i t yill tltl! r111ti<rr1:11 , I his ix iirsistrtl iiy)011 $11. r ~ l t l iir~l>s, rirld c.lfrrrts ti., tlr?crt.rrsa o r RII~. ~ ~ r t l i r rllliii :~~~ IIIIII~III('III frtl. 1 1 1 ~c~1111sl:1111l:iysl101rl11 vc~%istt!cl cbi11*rg64 i ctrlly. ,, /,. l i l t , I H I ~ of o l l i r t w ;rilcl c~i~li.;tcrl] ~ c ~ r s o t ~ frrrllrw ~ r c ~ l :i 1:1rg1> !,art <rC tlte t ~ s l ~ e r r t l i t ~ icrf n w Ill<. c ~ ~ ~ r s t i r l t ~ i l : t(~ iilloitld :y o.~ ~ s i i l e t ~ ~ t ior~ givtvi 10 1l11r st:c~itlrrrtls o f livirrg \siIlrirt t l i e rrlrrlrtry in cctrnl~rttir~g Ilrr r t ~ l c * s c~fI 'I'lro r a l t * s of 11t1y s l ~ t ~ ~ I*! ild HIIC~I $19 l o :ibtrtict I~IP 11(~1t t y l ) $ v ~JI~~ lI~S to j r ~ i l lI I i t < CO~S~:I~II~III'~, I$y rililkillg t l r t ~ rates of lrrty attrnc.(ivt:, rrnlivt-n rif tlrr, higlrc?st t,~pct w i l l lrr. < . ~ t r r t ~ : r n ~ e ~ l ettreor. 10 rr~rtlit! Ilrr! c r ~ ~ t a t r t l ~ ~ ~rli r t ry 'I'lris ~PIII.II~(~ is [1~1rtic!111:erIy e tlrrt.~l~gl~c tho n~t ~lerirnlrlr, s i n c e i t will tend t o p i ~ i r r ~ t r ttr:111<111iiity l tltc i T n i t c ~ t lf;t:ntos fctrces, if tho r t ~ ~ r t t l ri iyf t c t t . tbt: \ v i t l ~ d r < c w aof 1111~11II:IV(! s ( ? r ~ ( v ii t i i l l 6 ~ o i ~ s t t l ~ l ) r ~ l l ~ r ttlttjoritg i t f tSie c~ffict.rs ELIICI ftrr tr tienrlurr of: ~PIEJ'R, Init iallj., nll tlce offict!rs c~fLltt! cnnsliitrtrlrrry nru n ~ t s e i i ~ o rf s tltt-. I7nitt:d St8~tc.sf ~ ~ t n s s .'Pllc m i e s of priy gunnkd
fi1c8

..

Ijcb.

13

Iloust. t h e constttbnlary. Thest? public builclin,g \\-ill consist of barrz~oks,offices, forts, prisons, ctlrr~ps,police statioils d, in sorne cases, naval craft. Pnblic b l ~ i l d i ~ ~ g switllin the emirlent domaill of tlle are local gnve,r:n~ment ancl as SOCIIcan b e len~follyemployed by proper aatl~ority to honsc aild shelter the co~~stabtilary. Wlle~i s11cl111ousing does n o t exist, it m a y be nczessniy to rent. suitable buildir~por to erect permanent boilclings. Prison labor may be used in such constmction and evevy effort sho111d be macle to use constrtlction rnateriaEs obtaini~ble locally. Warelrouses may have t o be letts(d for the slorage of alpplies when snch space is not availa~blein old :~rsennls, forts, o r former ~ n i l i t a l y warehooses. 1%18. Military courts.-The system of n ~ i l i t a r y courts-11mrti2~l set 111) by t,l~e constabulary must. llwe t h e legal sanction of t11e locsl governnkent. Usually, t l l e cn~istitutionof any sovewigli statc will provide f o r military tribunals. I n such cases, it is rrecessary only to secure legislative. nppro~rnl f o r t,l~e system of courts mrrrtial applicable to tlre co~attlbulaly. A modific;ltion of the courts-nrartial system employed by t l ~ e U nited States forces, adapted to local conditions and t,l~e basic la\vs of tlre conlltry concerr~ed,will ustrally be acceptable. The system of courts-martial set u p ~vithinthe constabulnry does not usurp a n y of the juclicinl functioiis of the civil courts. BIeinbers of the constabulary, who commit civil offenses, d~oulcl be brought before civil courts for trial alrd pnnishment. (See par. 12-27.) Trial by coui'ts-martial is rese.rved for military and for crirninal offenses, when civil jurisdiction is lackiilg i n the latter case.

SECTIONI11 OPERATIONS A N D TRAINING

IlccI'llits Unit trailkirrg
POP . . . . . . . . . . . . . . . . -. . . . 15-10 . . 12-%

Page li
18

18

18 I ! )

u~etllods arlopted for tlie t r a i ~ l iof ~ irrcnlits ~ are depen<Ientul~on the n1ilit;~rysituation a t tlie ti11.1~ of Normally, recruits are suit to 21 central recruit depot for a, i;t:ltc.tl ~~erio d trnitling. Several recrl~it depots lnay be conductecl ill clifof fereot. sections of tho country. I n sorlrt? cases, recnrits inay be rc:taincd a t tlie 1oc:il statioli or mi1it;try post, trained at tllat station, R I I ~ l ater assigned to duty ill that locality or sent to nrlotlrer i l ~ i l i t i ~ r ~ post tlltrt rriay 11awbeen tl~~successful i n ubt:~illiitgtlte requilod ntulrof ber of recrnits. Tlig a d o p t i o ~ ~ a single metl~odmay be pr:~ctic:tLl~: in some areas while in otllers :L combi~~:~tion of training mctltoils xnny he necessary ill order t o rueet local conditions. Some troops arc illore effective ~vlieli serriilg ill tllcir ow11 community, \rhile otliers will 1% fo~uld t o operate rriore effectively in other localities due to chaoges iii climate, c~lvironment, and food. I n some situat.ions, i t is better to ernploy t,roops a\vay from tlreir home localities to preverlt thc u r n of tllcir authority inlprolrerly against personal erlemies or for i.110 beliefit. of friends. Recruitiug oficers sl~ould be supplietl wit11 nrriforms mid e(luipir~elltsunicie~itto outfit the number of recniits clesired fro111 the various sections of the country. Tlie tr:iitting of t h e recruit h a s tw) distinct objects iii view, namely, training as IL memh r of il military co~nbt~t. organization and training for police d~~tit.s. The milit,ary instruction of a leclwit covers the basic i11divic111:~l training of a soldier including target practice and drill. A recruit trainiug textbook in t h e 1:mguage of tlie couxltry concerned will he found extremely useful. Instruction of the recruit in ~ o l i c e duties includes instruction in the constitution of the country, civil and crirrrirtal laws, powers and limitations in making investigations atld avrests, a n d the assistance the constabulavy is to render Iw:L~civil officials. A handbook i n the language of the country concerrred,

1%10. Recruits.-'l'l~e

SWM 12-20

ering tl,cso poiice dt~ties \rill materially :lid in prt:senting this instr~ict,ion and will also provide a, nsefnl pnide to a l l lnelnhers of the c:otistnbulary. For t h e lerger cit,ies, it may be advisable to train units f o r the primary duties of minlicipal police ~ v i t h only secondary instruction in military dut.ies. T h e early training of colripetcut police forces for tlie larger cit,irs is one of the most effective methods to st.rengthnn the local government and secure the good will of the better c l a s of inhabitants. Medical enlisted personnel is obtitined of qnalified ilidivid~ialsfor ilutlty with the ~r~edical by enlistine~~t, service. 12-20. Unit training.-ITnit tmining is carried out by individual units of the constabnlary as a part of tlieir routine training in order to int~int,ain their military and police efficiency. This training embraces unit con~batt,r&ining, t:$rget practice. field firing, specialist trai~liilg,instrnction i n la\v enfi~rcenient and, in some cases, instruction in ele~rie~~targ subjects. InStructic~n n:hednles a r e so ncailrz~~ic arrang<%.il that training i1ow not interfere wit11 the nirm~almilitarj, and police duties of the unit. I n prepamtion for specit11 opelations, units may be more e,ffwtively trained at a central point prior to ongaging in such openitions. 12-21. Officers.-As soon as practicable after the formation of t.lle constab~ilary, n school for the training of native canclidates for commissiorl should be organized. The staff of this school is co~nposed of officers of the United States forces, who are specially qualified for this work. Rigid physical qualificat,ions are .adopted to cover the n,dlnittance of c:indidates. A11 candidates should have sufficient the military scl~oliistic qualific:itions t o insure their ability to t~bsorb instiuotion. 1 1 0 period of instruction for such a, school is 1 year. At the end of this pcriod, the c:tndidnte is given a probationary commission thnt is confirmed after I year of service with the troops. This metlmd of i n s t ~ ~ ~ c tprovides ion a ste:~dysupply of native officers to replt~cethe inen~bers of the United States forces. The gradual replncement of con~missione(l ~neclical personnel of the United States forces is effecteil by con~n~issioning native physicians as vacancies occnr. Tltis is usually commenced just prior to withdrawal of all United States forces. 12-22. Field operationsca. Each race of people has its peculiar cl~arrtcteristicsand customs. These may be modified solnewhat unrler influence, but cannot be entirely destroyed or supplantad. These characteristics and custolns should always be recognized and considered when ilealing with persons of cliffel-nt mces.

SWM 12-23

conside~~:~t.ion slrot~lil b. In the oi.~inizationof the constah~~lary, be given the form of warfare to wl~iclrthe t,roops are nccastomed. 30attempt sl~oold be mnde to imlii~se entirely new for~ns of tactics : L I I ~in(Ii~~trinatiorl is nvtiilahle. I n r~rrlessa long period o f tmi~ling emergencies, or J ~ I I ~ Ionly I a li~nitt.<I t i~ncis availi~blrfor twirling, it may b e hetter to organize t,l~e tro~ps :~ccorclingto irwtir'. ~lretl~ods. Different types of orgtlnizatiolls. rqniliment, :~nrlttlctics vill often Ite required in vtlrious localities. 12-23. Troop leading.-a. Strict. jrtstierr exerts :I ~nnrkecliirrfir~ence on the disciplil~rof native t,~.oops. il few lessons s~~fice: as a rule, to impre% up011 t l ~ e ~ that n orders are to be obeycxl. 1VI1en this iden II:IS been implanted in tlleir i~li~r(ls, tlley goneritlly beco~nen~ne.slxble to discipline. b. During the earlier field operatiol~sof tlre co~~st:~bnlury, it is usually advisable to employ miseil units co~rlposecl o f snc.~nbers of t h e rlniteil States forces anit tlia const:~hulary. I.:~.t,er, t h e Unitrrl States forces a r e used only its >Ireserve av:lilahle to support the constabulary in emergencies. T l ~ e constxbu1:trp grt~dunllyassurrles full resl~onsibility f o r the mi~iiitenanct? of 1:lm a n d order. I n active oprwtions, tile officers of the constabi~laryshotild h nlodels of leadership, inof ~ the United spiration, and a n example to the.ir troops. M e m b t r ~ States forces serving with the constabulary nus st possess good judgn~rna t n d estren~e patienee, coupled wit11 tact, firrn~~ess, justice., a n d control. Firmness w i t l ~ o i ~ t adequate means of support may (legenerate into b111ff. 'I'act ~tlonc?m i ~ ybe inte,rpreterl a s weakness.

SWM 12-24

SEC'~I~ VX
AUXILIARY FORCES
Par.
I'rtxe

IJrban altA rurnl :~irn~ts S1mi:ll :iger~ts.-.- ~. A~siiii :~ t s ._.

~ ~

. .

. .. .

- 12 ? . 1

21 21 22

12-24. Urban a n d r u r a l agents.-Srn:~ll tlelarhtnents of varyi~lg tlrr couiltry in to~~rrn: size are st:rti<merl tl~n)ugl~ont cit,ies: and village-~. Each det~:icl~rnent is nssiglred t h e task oE restoring :urd n ~ x i n a given nrea. ' I ' o ilssist the detaclinrcrrts tr~ining li~w alct order vrritl~in in the pcrfo~~nance of tlreir tlntirs, mban and 17rral :rgel~tsare employed n s p:~rt. of tlrci const:il~nl:rry. 'I'lr~~se agents a r e selected from :inro~igt h e inlr:tbit;~rrtsof v o ~ n ~ r ~ r n ~~ i tn ~i d or~(lyin.g i~s sections. Only rllen of h i d l stt~ndingin tllr C O I I ~ ~ ~ itre I I Is ~ ~ l ~e ~ c t c for ~ i t l i s dnty. 'Il~mc,,agents :&re,in reality. t l ~ e r n r d police of t h e const,abnIn.~-y. by the const,abulary and are 'rhey are nppoinBd o r cornn~issiont~d p:~id as EL snprate budget:~rymlit of the constabulary. T l ~ e ya r e gra.nted powers silnilar to tlrose granted u slreriff i n the continental IJniteil States. They twe rot giwn ally distirrct,iru n~~iform, but art: providecl wit11 a badge of oflice, 1:ogctlier wit11 a spec.i:il police permit to bear arms in the e,xecntion of their iluties. These age,r~ts rurr u11de.r the direct eommancl of tllc loci~l constabula.ry commander. Eniployment of such agents is in~~nlunblo~ since they are tl~oroughly with ft~~nilia r their section or comrnnnity and know all the individuds residing in tlle xricinity, tllns lnlrkil~gthe a,l)prelrension of a n y resident mitlefactor a comparatively easy tasli. They keep the local constabulary comrnnncler informed of the domestic situation within their respective seotim~s, tlrerelry forestalling any organized attempt a t insnrrection or rebellio~~ ngt~inst t h e local governme.nt. 12-25. Special agents.-In ntldition to urban a n d rural agents? indiviclui~.ls nmy bc armed and endowed wit11 police po\rem. These special ugents are e~nploycilby olrners of large estates, plantutictns, mines, rancl~es, banks, and ot.ller largs firrnncial and commercial lrotwes. They act, as guards for the protection of l i f s and property from marauders, bi~ndits, and robbers. They are paid by the estate or firm employing them and :urc3legally empou,ered by t.he constabulary to make arrests o f t.respasst:rs as agents of t h a t force. They

;we. givcn IL distinctive badgo of oflice and ;lrc issoecl ir special police pennit. to bear :Inns ill tlie perform;irce of tlreir duties. Tlre appoint inent of spairrl agents slrould be niade. only after a cnrefl~l i1rvestig:rcoti~rnai~de.r. tion 1)y tlre local coi~st:~l~ul:~ry Urrder n o cimrnnst.:~nces, slrould tlie pr:~ct,ice of ;t.l~pointiirg sliacial agents Ix perlnittc!tl to grow to such an extent that any I:~rgc land omtler hrls a considerable ~lrnnbor of annetl nren in Iris emlilog rurd under llis cont,rol. Tlre lririrlg of additional sprci:~lagents slrould 1-16strenaously opposed whar sufficient lxrsonnol of tllc*. constabulary is present in tho vicinity t o lxovidc protection. 1P26. Auxiliary units.-JVheir an orgnllized rebellion or insnrrection develops, or wlrel-i banditry assuines st~cllproportions that t h e of tlrc constaln~laryare unahle to coinl~at suclr donlestic locnl ru~lits units under the dircctiol~ of tile condisorders succesfully, voll~ntet~s stal)ul:~ry m:ly be orga~~iztlrl from the inhabitants to. assist in quelling srtcli disr~rdess. Tlresr+ ausilirlry units are coinposecl of inhabitants wl~o art? anned ;end r:~tionedby tho co~~stabulary.hnsiliary tunits am t,eiripor:~rilyurnled forces, a i d a r e eiiq)loyerl only for tlle dur;~tiall of t l ~ ernergency. e 1)oring their period of service, they ilrei governcd t ~ ~ controlled id i n the stune manner as regnl:~rnlen1kr.s of the constabulary.

SWM 12-27

SECTION V
CIVIL AND MILITARY RELATIONSHIP
Par.

Kcl;rtio~r to eiril ~m~wer -_--... Kelstion to Ullitcd Statcs forces

~-

. . .

12-27 12-28

l'ase 23

24

PGil'i. Relation to civil power.-a. The constabulary represents :~ndits territhe power of the executive brancl~of tho gover~~ment tori:rl subdivisions. Unln\rful acts cornmitted b y ~nenibersof the are nst~ally four~d to bc in co~~troyentioit co~~slabula~.y of the regulations of tlre c o ~ ~ s t ~ i k ~ ~ x ltlre i ~ r civil y or or criminal laws of the counand crimes that t r y 111 tho former class are military n~isdemeano~% are \vit.lrin the jurisrliotion of the milita~typo-mr; that is, tlie constabrt1a1.y courts-tnilrtial system. I n the latter class RE. those crimes : ~ n dfclo~liesthat a r e set fort11 i n the penal code of the cou~~try. Generally, any infraction of const>~bnlary regulations by a memher of t,he constxb~~lary should be tried by the constnbulary itself, either by t t ~ e ,member's immediate commanding officer o r by tour% martial. Like~vise,~ne~nbers of the constabnlary clrarged wit11 conspil-acy agai~rsttlre local govenlment should be tried by court innrt,i>il and tire po~lishment executed by the constabulary after contirmation of the sentence by tlre Chief Executive. Alleged civil offe~lses are first in~.estigatedby the constabu1:~ry. I f an offense is found to be sufficiently proved by evidence as to its commision, the member sllould be discl~iirgedfrom tlre constabulary and de.livered into the custody of the c i ~ i l autl~oritiesfor trial a n d pnnis11111ent as a civilian. If, Irow~,ver, after investigl~tionof the. offense by t h e wnstabulary, tlre eviile~~ce indicates tlltrt. the rnomber is guiltless? h e should uuder no circti~nst;incesbe delivered to tire ciril antlroritics for trial aild until s ~ r c h aotlrorizatioir lias been secured from the co~nl,tui~islri~~ent an an ding officer of t h e constabula~y. 6. It is to be espected that some animosity a n d jealousy mill be prevalent during t h e establishment of the constabulary by offieers of t h e United States forces. Attempts may be made to interfere with o r embarrass tlre constabulary in its operations indirectly by civil-court actions and by noncooperation on tho part of lr~inor officials. Complaints againut iner~ibessof the constabulary should

SWM 12-28

be tlrorougl~lyinvestigated. JVIlen m n n n ~ ~ t en d ,just trial slrould b e imllrediately corrducted, ~vithl)ro~nptpu~lishmetltof guilty i~ldi\,iduals, thus ir~dicatirrgto the pol,ul:rce that the constirbulary ellforces tlle la\\. alllong its 01~11 n l c ~ n l ~alrd r s that they receive 110 l~refere.titi~1 not grnnted civil violators of tire Ia\v. T h e ellief of tlre treatrne~~t constnbulary is resl>o~~sible directly to the Clriel Execi~t.iveof the couutry, ~vllo is the co~nma~icler in chief of all the trr~r~ed forces of tlre country. c. I11 their cot~tacts \vit.l~ civil officials, ~lle~rrbers of the cunstabolnl-y must be courteolls, firrrl in tlre execr~tionof their duties, and just ~ I denlirrg I \\-it11any and all classt!s of i~lliai)itants, regardless of mnk, title, creed, or soci:tl pusition. Tact is 011(3 of the 111ost necessary :~ttributffiwhich ]nay be possesserl by mnnhers irf t,he a~ost,abulitry. l h i r mld just. operation of HIO co~~stabulary IIIIIS~, al~vays be ternpered wit11 tact. Brutality ill n~aki~ig ir~vcstig:rtionsand arrests should sul~l~r(!ssed.T l ~ n intldlitants sl~ouldbe enbe fin111y aud l~roml~tly counrge,cI t?)regard tlre cclristab~llaryus all ironest, i~llpnrlinl, and just 1:uv enforconrent xgeucy, frierltlly to~vnrcl the law-abidi~rg population. In ti~ues of e~~~q,rge:ellcy during fires, floods, nud e ~ r t l r q l r a k ~ the . ~ ,~011stnbul:rry shoald be quick f o rtmder a i d to the tlistressed. 12-28, Relation to United States forces.-a. The line of demarc:~tion betwee11 tire execution of tlre military power of t11e United States forces and the collstabulary slronld be definite. W1le11 it has attailred full st,rength, t h e constabulary should have sola' responsibility for the preservation of law mid order. Since the United Sttites forces lrave set u p this ~nilittrryinstrume~~t;rlit for the local the constt~birlarysl~o~rlcl state wld endowecl it. with a ecrtaill stre~rgtl~, lrave u~~hampered opportunity in its cotldoct of operations as t h e armed force of tlre country. Interference by United States forces ~ ~o o t seriously decreases tlie i~restige of tli6 co~~sta.l~t~Iary, ~~ ly but a l s ~ d e ~ ~ ito e s t h e local st,:~te t h e ability t,o utiliae freely t h e forcr. that llas h,eu creirtecl to increase its powe.1. all& prestige. Tllcr constahulirry :Issumes its functions grttdually, 2 1 s it recruits to full strength, nucl of t,lle country u ~ ~ d e r gl~idatlco ttrkes over the police functio~~s the itnd observatio~r of the United Sti~tes forces. W l ~ e n tlre constal~i~lary to perfom its d ~ d i e s the , U11itec1 Iias de~nonstratedits ctrrr~l~etel~ce States forces relinquisl~ c o ~ ~ t r o l ~OIIIIIIILII~ and are withdrawn and , and co~~ce~lt,rated a t cet~tralpoints where they are available to be employed us reinforcements in onsn of unexpected emergencies. Duritlg tlre orga~liaationof the eorrstabnlary, the assignment of tietachments of the co~~stabulary to operate with elemex~tsof United

States forces in joint. action g gain st I~ostileforces I I I ~ I Ybe advisable. I n this manner, tlle constabol:~ry,as \\-ell as t,l~e native population, will feel tllwt. the local sitoation is being 11;~ndled b y their own govacts eonlernrne~ltal agency and ]lot. by a. foreign liomer. Unli~~vfol lnitted b y ~nemlxrrsof the constt~bularyor by civilians ag:~instt h e United States forces are legally under t,lle jurisdiction of the United States forces and may be p~~nisllahle by an exceptiol~almilitary court. martial. Wilenever possible, every effort is made to 11ave t h e offenders tried by the const;lbnlary cco~irts-martit11 system or by t h e local civil judicial agmcy in order that sucl~ unlawful xcts may be punisl~edtry agel~cLsof llle country : L I I ~ not by agencies of t h e United States forces. b. When joint operations are cor~ductrdby United States forces and the constabulary, t h e principle of seniority accor(li11gto rank of nlenlbrs of United States forces present should be retained. Thus, it: the senior col~st:ab~ilar~ officer present, wllo is also all officer of the Uniteil Statr?s forces, is senior t o the officer in command of t h e tillitell States forces prese~tt,the senior conslstabolar-y officer asstunes co~nrnandof the joint forces. IVlien the officer in conlmand of t l ~ e United Statc$ forces present is senior, he assnnles command of both organiz'at' lons.

SMALL WARS MANUAL

UNITED STATES MARINE CORPS

1940

CHAPTER XI11

MILITARY GOVERNMENT

TXlTED STATES
GOVERIMENT PRIXTING OFFICE
WISHIIGTON :1940

TABLE OF CONTENTS
Tlie Small Wars Manual, U. S. Marine Corps, 1940, is pablisl~ed in 15 chapters as follows:
CHAPTEII~ I.

11. III. IT. V

1iVTRODI:CTIOS. ORi:.\Nl&hTIDN. 1.001STICS. TItAIXING INITI.\I, OI'ERATIONS

VIII. CONVOYS AN1) CONVOY ENCOICTS. IX. AVIdTIOS. X. RIVER OI'ERATIONS. XI. I)IS.iRMb>lEST O F I'OPUI,ATION. XII. ARMED hTbTIVfC: OR(lAN1ZATIONR XIII. MILlTARY GOVB:IINMENT.
KlV. SUPERVISION O F ETBCPIONS-
XV. WITIlDItI\\'AI,.

SMALL WARS MANUAL

UNITED STATES MARINE CORPS

MILITARY GOVERNMENT
Par. Page

SECTION I. GENERAL.. . . . . i3-1 tO 13-6 11. ESTABLISHMENT AND ADMINISTRATION OF MILITARY GOVERNMENT.-. . . . 13-7 to 13-23 1 1 1 . APPLICATION OF PRINCIPLES TO SITUA~IONS SHORT OF WAR-.. . . . _ _ ..._. .. . . . 13-24 to 13-25
-

1-3

5-19

21-22

Smols I

GENERAL
Pap.

1'~ge

............................... C ......~ ..... n .....e ..... r .... n .....l .

....... Definitions ................................................

l:%l
1s.2

1
1 2 2 3 3

Authority for exel.rise of ~nilitarsgo\-t'rnmelrt-.................... At~urtio~rs of ulilitary govcirlllneat in gcnrrsl ......... I 1 c

.......i............s .... I
............. i......................................

1:I--3 15-4
1.%5

13-6

1:&1. Scope of chapter.-a. The, features of t l ~ sul~ject s of n~ilitary government herein discnssed relate to the powers, dr~ties, arm i~eetls of an oficer detailed to command a force on a missiol~ ir~volrii~g interrention into the affttirs of a foreign country 11nc1'r conditioirs which :ire ileerned t o warrant the estallislrnient of complete rnilitnry control over the area occupied by t h e intervening force. WllilC the forn~ of milias military goverrrment is designed principally to tary c o ~ ~ t rknown ol rneet the conditions arising during a state of war, i t Itas been resorted to, by t h e United States in numercn~s instances, where tlre inhabitants of the country were not chnracterizeil as enerrlies ancl where war was neither declared nor co~~templated. 6. Militzlry go\~ernment being founcled on the laws of Tar, many questions arise with regard to the method to be used i n tbe application of tlrese 1a.w~ of such n govin situations requiring t h e establishme~~t ernment nrlrere no state of a a r exists. It is the purpose of this chapter to outline the. general principles involved in the exercis of t~~rtliority and functions of military government and to indicate lrom those principles a r e applied in t h e various situations with vvlticl~ the marine or naval officer may be confronted. 13-2. Definitions-a. ,$filitctrygonemzme.nt.-Military gover1iinent is the exercise of military jr~risiliction by a military commancIer, under t h e dirrction of the President., with the express or implied sanction of Congress, superseding as f a r as mily bo deemed expedient, the local lam. This form of jurisdictii~n ortlinarily exists only it1 time of war, and not only applies t o the occupiecl territo~yof a foreign enemy but likewise to the territory of tile United Sti~tes in cases of insurrection o r rebellion of such mabmit~dethat t h e rebels are treated as belligerents. 1

GESERAL

b. 6fmrbicrl Tot!i.-Martial la>\. is t h a t f o n ~ of~military rule called into nction by Collgress, or temporarily by the President when the action of Congress caurmt. be invited, in the case of justifying or cscusing lxril, in time of i~~surrection or invasion, or of civil or foreign war, wi(lri11 districts or localities whose orclinary law no longer adequately secures public safety and private righb. c. D'~tEnctio7t.v.-Tlre most important distinction between military govenrnient nncl ~ n a r t i a lam l is, that. the former is a real governmerlt exercisecl fo1.a more or less extended period by s military commander over the belligerents or otlrer inllahitants of sn enemy's country in war, foreign o r civil; :nnrti:~l l a ~ r ,on the other hand, is military aut,l~ority cnlletl into acttion,when and to tile extent that public danger rc!rlnires it, ill localities 01, districts of the home country ~~11icl1 still rnaint:~inadhrsion to t,l~e general government. The subjects of milit n l y governn~ent a1.e the belligerents or otlit?r irrhahitauts of occupied territory, tllose of inartizll l:tw are t h e inli:~bit:ints of our own territory who, ihongl~porl~aps disaffected or in sympathy r i t h a public c~~e,my, aye not th~~~nselves belligere,~its or enemies. The occasion i s nsually war; that for martial law is simply f o ~ ~ ~ r ~ i l government it~nry r~liblic esigt~ncy \rIlich, tlior~gh more co~nmonly growing out of pendI I I nevertheless be invoked in time of peace in great calalnities such as t.nrthqu::kes and nnob uprising^ a t home. 13-3. Authority f o r exercise of military government.-Military government. nsn:~lly applies to territory over which the Constitution Its exercise is mril laws of the United States lii~veno ~perat~ion. snnctio::ed hecanse tlre powers of sovereignty have passed into t h e hands of tlre comm~~~rcler of the occnpying forces and the local autholity is u~mhlet,o m:rintain order and protect life and property i l l the irn~nediste theater of military operations. The duty of such protection 1)i~ssc:st o the occupying forces, they having deprived t h e people of the pro$ection n~lrichthe former government afforded. It is decidedly to the military advantage of the occupying forces to establish a strong and just government, such as mill preserve order and, ns f a r HS possible, pacify the inhabitants. 13-4. Functions of military government in general.-As to its function, military government founded on actual occupation is a n exercise of sovereigmty, and a s such dominates the country which is its theater in all branches of administration whether administered by officers of the occupying forces or by civilians left in office. It is ?he govennnent of and for all the inhabitants, native or foreign, wl~r~lly sul~srsedingthe local law and civil authority except insofar

S W M 13-5

are as the same may be perznittt?rl t o rsist. Civil functionaries ~vho retained mill b e protect.ed in t h e porfi~rm:~rrco of tlleir duties. The local lilrvs and ordinances nrny be left in force, :~ndin general should or in part suspended and be subject, liorvever, to t,heir being ir~~~~1101e othei-s substituted in their stead, in the discretiun rtf the guveroiug authority. 1,7-6. By whom exercised.-Military governlnent may be sr~idto be exercised by the military cornlnander, under tlre direction of the Prt,sident, with the express or implied sanction of Congress. The President cannot, of course, personally administer all the details, so h e is regnrclecl u s having delegated to the comm:~niI~~r of the occupyi n g forces the requisite authority. Soch co~nlnandarrn:~y legally do rrlmtever the President might do if he were pvrsoo:tlly present. It f~~lloms that the cr~mmmderof the occc~r~yi~ig force is t,he represoiitative of his country and shonld be guided in his actions by its foreign policy, tire sense of justice inherent in its people, aud tlre i single principles of justicc u s recognized by civilized il;~tions. \ niisuse of power, even in a nratter that seerrls of lit,tle i~nportance: nlay injure his country and its citizens. Foreign, official, commercial, a n d social relations depend in :I greut measure upon the friendliness of other countries :n~dtheir people. Acts o f injustice by a force commander jeopardize t,lris friendliness, especiillly in neighboring countries, or in tl~osc!whose people. have raciul or other ties irr C~IIKImon with the pe(~ple of 1.he occupied country. 13-6. How proclaimed.-In a strict legal sense no proclatnation of nlilitary occupation is necessary. Military governrnent proclaims itself; a formal proclamation, altl~oughnot require(1; i s invariably issued and is essent,ial in s practical way as announcing to the people that military government has been estublished and advising them i n general as to the conduct that is expected of t h m ~ . It should be remembered that the inhabitants do not owe the military government allegiance; b ~ they ~ t do owe it obedience. .\ si~mplefor111for a proclamation may be found in the corrent issue of N:tvnl Courts and Boards.

SWM 13-7

SECTION 11

ESTABLISHMENT AND ADMINISTRATION OF MILITARY

GOVERNMENT
Par.
.

I'nge

6
13-8

5
8

9
Digest of information.. .
11 13

Exceptional nlilititry cour Col~trol of civil and n~ilita Public utilities

14 15 15 16 17
17
. .

Requisitions and oontributio118. . . . .. . . . .. . .. . .. . Public a n d private property Employment of inhabitant Police and elections..

13-20 13-21 13-22 13-23

17 17 18 18 19

I,&?. Importance of organization.-The efficient administration of a military government iequires that the officers chosen for t h e administration of various departments should be particularly qualified for such office. 15-8. Plans.-a. 1Vheneve.r it becomes known or can be foreseen that territory is to be occupied, the commander of the military forces that are t o occupy it will no doubt be called upon to formulate beforehand his plans for administering the. military government. These cletniled plans are prepared by him under thr policies prescribed b y higller authority pursuant, to sllcll general plans or policies as may previously have h e n prepared, announced, or approved by the Navy Department.' They will alvays depend upon thr. milit~ry situationl i~nd n~illbe influenced by the political, economic, and psychological factors which nlay prevail in the area to be governed. b. The actual preparation of the main plan or plans is primarily n function of that section of the commander's staff which will later take part in the administration of the military government. The commander of the occupying forces should ordinarily organize a separate
5

S W N 13-8

and additional staff for tire administration of civil affairs. Hon.eres, the plan as determined upon by the commander of t h e occupying force requires coordinated study and assistance of the several staff officers. F-1 provides the data. as to personnel; F-2 the data as to the situatioli in the territory to be occupied; and F-3 the data. for coordinntiori ht~veeii tire tacticit1 p l i ~ n and the xr~ilita~y gover~i~rr'nt~11x1. c. Too much emphasis cannot be placed on the necessity for having tire military government under a separate staff section, thus avoiding tho interference with the militnry frunctions of the usual staff sections, and yet coordinating the whole under the supervision of the force commander. T h e chief of this sepnrate staff is designated as Officer i n Charge of Civil Affairs. A n outline of t h e organization of this staff showing the various st~bdivisions,along the duties assigned to each is set fort11 in the following outline which is intended as a guide only, there being no hard and fast rnle prescribed for organizing this staff:
The ?,~ilrtavy govorxor and clz'tl affairs staff
Tttie

Outline or duties

SWM 13-8

RfI1,ITAIIY
(:OVISILS,\Ib;S'L'

'rhc Departme~~t of War aiid Xnry mill be :tbolished during t h e occupation. d. The plan of the commander for the administrtttion of the military government sllould give expression to his decisicnis and instructions on the following points: (1) T h e distribution and territorial assignment of his military forces in the occupied territory. (2) The. immediate cllanges, if ttrry, to be lnade in the local govenlment:il system. (3) The extent to ~vliiehthe more important local civil officials are to be displaced and officers appointed to fill their places. (4) T h e relationship \vl~ichis to exist. between the civil and military administrations, especially tlre extent to which tactical subdivisions a r e to be used as units of control of the civil administration. e. The following form illustrates a y i d e which might be. utilized by the coinrnancler of t,he forces i 1 1 dr~i\vingup the general instn~ctions set forth above. Ainiexes to this plan will be prepared showing the proc1amat.io11to be issued, the supplemental regulations to be published a t the beginning, and proposed staff organization for administering the military goven~ment..
MILITARY GOVERNMENT PLAN

Distribut,ion aaid territorial assignment of tlie occupying forces:

Generill distribution.
(1) Number of areas into which tlie occupied territory is t,o be divided for administrative purposes. (2) Generttl policy of the commander in respect to the. distribution and administration of t h e military govenmient. Territorial assignmerit of units.
~

unit
~

Eica.nde~mrter~

.+pea

i wk ~ ~ tO U . W . . . / ~ c s i city & ....... ~ ~ ~. ~ 10iYtl ~ l a l i t i ~n ~rln t o ha m ~ i c by ~ the l teak nuup noting any extraordinary misrioo.

N o ~ ~ . - W i t h i n then mpectlve areas, mmmandes wUl wlltieal subdlvlslonr when oreztlcablo.

wlgn districts and subdistrlots mnfmmtng to

Immediate changes to be made i n the gove (l)Poxvei*s to be exercisrd by the Military lninistration of the occupied territory. (2) Irr~mediatechanges to be made in the, system as a whole.

SWM 13-8

ICxtent lo ~ v l i i c lI I~ IOI.~: ~ I I I ~ ) ~ ~ I : cix-il I I : I , oltiqi::l~ arr6 to 1~ rlispI:t(:vd: (1) Statnu of (.?l~ieE 13srrrttivn n ~ l c lhis c:~binrt nndor tllc 11iilit;:ry govc!.Illrlt~llt. (2) St:ttus of 1.he Co~igress11111lnr the inilili~ry~ ~ \ ' ~ ; I . I I I I I c ~ I I ~ . . (3) Status of the Governo~s :~ndother civil officers of the several provinces. (4) Status of the mlston~san11 tax coll~~tors.
Relationshi]) bet,%-eon the civil and 1nilil:lry atlministrations:
(1) Military cominimdors assigned to various arms-wilt thoy perform civil administrative duties o r act pilxly in an rtdvisory eapi~city? (2) Local laws and ordinunces-mill they be adopted, :l~nmded, or abrogated? (3) 111tesiial j~xdicial systern-to \~.11st estcx>t will it fnnct,ionY (4) Will a strict o r liberal policy in relations ~vitliofficials and inhabit ants be pursue(l? 1:M. The proclamation.-a. The proclarnatioi~of the c o ~ n r n a ~ ~ d e r to the inhitbitants of the occupied territory sltoulrl be prepared beforohand, should above all be brief, and shoulrl cover the following points: (1) A n i ~ o ~ ~ n e e ~a ns e to n t tlie exact territory occupied. (2) Tlio extent to \vhich the local lams and governnrentul system nra to bo continued in force, including a statement thnt the local criminal courts have n o jnrisdiction in cases of offenses committed by or against ntemhers of tho occupying fo~ces. (3) W:~rningthnt strict obedience of t l l ~ orders of the commander of the occupying forces is to be expected of all, and thnt tllose who (lisoboy such orders or re,guIutions,or co~nmit acts of hostility against the occupying forces,.\vill be severely punished; but those who chebrfully accept the new sovereignty ant1 nbirle by its orders will be protected. (4) A statement that fhc occupying fon:es corne not to 111ake war upon tile inl~abitantsbut to help them reestablish tl~emselves in the ways of pmeo and to enable them to resume their ordinary (~'~c~~pat.ions. (5) I n conclusion; the proc,lam:~tion sliould make refe.re,nce to s~ipplemental teg~~lrttions to 1% issneil containing more detsiled instroetions. 6. The r roc lama ti on slto:~ld be pnblished in English and in the national language of t.he occupied territory. l'he conditions \vhich might call for such proclan~ationsa r e varied, and in each case t h e

SWM 13-10

(ICoi. fo1.111 for ii ~ I ~ . O C ~ > I I I I : I ~ ~ O I I ~)articrrl;~r circnr~~sti~i~cc~s 11111~1 ( .011(1.01. sce currt~rrt edit ion of S;r\;:11 ('orrrts ill~rl Ur~;~l.tlu.) 1:k-10. Supplemental regulations.*r. Tlte 111i1iti11.y fio~ermn~~e~tt, being sulJrelnr: can la\vfully dtsnnrrcl t l ~ e absolute obedieuct? of t h e inl~abita~its of the area oror \ ~ h i c hi t is exercised. There should, be 1.>1epnretI and re,ady for issue contemporaneously tlterefore, alx~ags nit11 tile proclsmation, o r as soon tllereafter as practicable, a supplelnemrtilry order giving definite t?xl)ressioi~ to regolatiorts ~rnddekxiled i~~strttctio ~~ on a s variety of si11)jects in order that the inhaKitants lnay be frtlly infon~vtl fron~ the first, as to the. condnct. thst is exlwcted of tlrem. b . 'I'lie. drsftiug of tiles, ~egulatiorrs.nwially a t a ixeactqu'hrtrss f a r rei~ic~~~e,d all easy task. frnin tlre theater of operatiomls, is by no ~r~eirns If tltey are nmre l~irrsh tllaii is necessary for tlro or reservation of order irnd tlie proper decorrin~amid resl~ect,tlrn force co~nma~ldcr ilmrcl his govennl~erlt are bound to stand in disrepute before the civilizetl ~vr-orld. c. One of the ~ r i n c i p a ailrrs l sl~oc~ld he to so administer the. ntilitsry governn~entthat upon conclusion of the occupstion, t,lre transition to tlre new state of affairs rnay be accon~plislre.ct \vithout radicul change in the mode of life of t h e inhabitants or undue. strain in the return to, or setting in niotion of, the machinery of their o \ ~ n laws and institutions. Yet, restrictions must he placed upon assemnblnges, not~vithstanding that tlte people, looking to the fnture, will \!-ant to gather together and discuss ~ ~ l n t f o n of n s l~olitical parties o r campaigns f o r supre.macy in their national affairs. Parades and gatherings in celebration of nt~tional holidays, nnd even religious processions on church holidays, may have to be restricted. The problem of reconcilil~g t,hese.conflicting features is one of the most difficult a n d delicate nrit,h ~rrhiclt the ririlitary govern~r~ent \\rill have to deal. d. Tlre principal restrictions included in the supplemental order reInte to unlswful assen~bly,circulation, identification, possessior~of arms and ammunition, policy as to martufscture and sale of alcoholic bevernge,~,and offenses in general against the personnel, establishnrents, installatio~rs, and ntnterial of t h e forces of occupation. e. Co~rsideration should be. given to the following matters: (1) Tlie force and effect of the instructions, i ~ ~ l enrrd s , re&~~lations contained in the order. ( 2 ) The fnct that existinp civil lwvs shall remuin i n effect, t ~ n d be enforced by the local officials except those laws of political n:lture, and except that the. civil laws shall not apply to members of the oe-' eupying force.

r,

SWM 13-10

BLlLlTAltY COVERS31EXT

(3) A list of rtdditionttl rules and regulations inrposed by t h e military autliority, a n d to be enforceil by n~ilitarytribullals, i l e c l a r i n g it t o be unla\vful:
T o act as a spy o r to snpply infnrmation to the oppnsirlg furcer.
T o cause damage to railway property; war mm~terials,nn(1 other public
utility. T o impnir sources of wnter supply. or secrete any Binds of sr~ppliesor materials useful To destroy, d;~Irlilge, t o the occupyi~lgforces. T o uid prisoners to escape, or to willing assist the opgoniklg forces. T o hnrm or injurt! members of the occupying forces. T o nttempt to ilrfluerlce nlembers of the occupying forces to fail o r be derelict in the perfornlnnce of their duties. T o damage or alter mllitnry signs o r notices. T o circrtlilte propngnnda against the interests of the orcnpying fnn:t!s. T o recrilit troops, or to enuse desertion try memhem o f the oecopying forces. T o eorn~nitany 1 1 ~ 1 .of war, treason, or to violate t h e laws of war. T o utter seditious lnngonge. T o spread alurmist reports. 1 '0 ' orrrelrarge for lnerchrrndixe sold to lnernbers of the occupying forcen. T o interfere with troops in fornlation. V ' o comlllit arson o r to llnlawfolly conrcrt property to the injury of the occnpylng forces. T o circulate newspapers or publications of a seditious nature. ! V o signal or almmnnicate with the opposhlg forces by any nteans. forces. 1 '0 ' nketch or photograph places or materials used by the ucm~pying 'Po enenpe or attempt escape from imprisonment. T o swear falsely. T c t forge. alter, o r tanlper with passes or other duenments issued hg the occupying forces T o Interfere with o r refllse to comply with requisitions. T o wrforrn any a c t in sabstantiitl ohstr~icllon to the military governmn~t. T o show disrespect to the flag or colors of the United States. 'Uo print, Wlst, cirr?lltlte, o r publish anything antagonistic or detrinlental to the Military Government or t h e Forces of Wenpation. (Publications or cenmrwl f o r cunne.) znny slIR~~~ndRd T o violilte any groclrmiltion or regrilation issllel Isy thr occupying forrw. T o collapirt!, attemi)t to (lo so, or aid and rcbet anyone violating the foregoing reglllations.

f. It is important to have beforehand a thorough knowledge of t h e customs of the country to be occupied, for the enforcement of regulations which run c o u n t e r to long-established c u s t o m s is a l w a y s extremely difficult. It is not likely that much difficulty will be enc o u n t e r e d in the enforcement of purely military ~ e g u l a t i o n s , but

where the customary daily life ef the ~ i v i l i ~ population n is circum-

scribed by marry restrictions iirrd inco~rvcnie,nces~ t h e tendency is towards frequent or continual violntions. Dt,sirable a s such restrictions m a y seem froir~ a n idealistic standpoint., they d l not b e couducive to success unless they a r e so fmn~rodus t o liarmox~izet o tlre fullest possible extent with tlre psyclrology of tho popnlation \vlricl~they nre expected to govern. 13-11. Digest of information.-In addition t o t h e study of the, theater o f operations, the commander should be fui~iishedvittr a digest, prepared by the Lam Officer, utilizing all infornit~tionat. the disposition of tlie Second Section, a n d sc~chotlrer pertinent information \vliiclr ~ ~ o c r lbe t l of value to tlre comninncler ill administeriirg tlre niilitary gove.rirrnent. A saml~le form for suclr a digest follows:
DIGEST OF MILITARY, POLITICAL, ECONOMIC, A N D PSYCHOLOGIC INFORMATION
1. MIu.r,\nr.

HITuxnos (omitted).
(1) Executive Irrmer. ( a ) 111 whoin vest&. (b] Methot1 of accession. (?I Term of offlee. ( d ) Cabiriet and ildvisers. (2) Legislative puwer.

2. I'ounc~r.Su'ua~rox.

u. Natiottal I/OVCI'IIII,.CIL~.

Coml~tsitiol~ of legislati~e body. chosen. (c) Term of offlce. ( d ) Lrgislfltive proccmlura. (3) Jrtdiciitl dt~lurrtment. (a) Existing systrm. (b) EBicieney of existing tcnirta. 0. LucaC !lovePtL??~~srt. (1) Drseri~ttlonof pditicai divisions of country. ( 2 ) Adnlinistri~tion of ~nliticnlsnMirislons. (3) Adnii~lirrtrrltiolr of rnmrici~nlities.
((L)

( b ) How

c. I'olitieuC pUrfir~8.

(1) Princip:tl parties. (2) Leaders. (3) Sphere of infl~renct!.

(41 Political tenets.

(5) Po1itic;ll background ~ r i o rto eslablialllnent of militurp govd. Trealiea and

ernment. cw~uonlionx. (1)Existing and w i n g . e. Fra?tclti8f!. (1) To whom granted. (2) How exercised,

11

SWM 13-11

h. Z'upsfrrtion. (1) Entire comltry ( 2 ) I ~ n ~ r t a cities u t and purta. ( 3 ) Distrlblltion of imlnllntion. (4) Percentnge and distributia~tuf forrigtlcrs. e. Production aft4 industru. (1) (:hirf illdustrics and resources. ( 2 ) Lcrcntion. (3) E q o r t s 11rrd imnorts. ( 4 ) Si~iijs zi1111 sltii~i>i~~g. ( 5 ) >lines anil qunrrit!s.
d . Pittatlee.

(I) &loaetnry systrm. ( 2 ) Finnr~rinl rollditiou of coantry. (3) Sources of n!r.?nut!. ( 4 ) C~lr;to~ns ;r~Il~~inistr:lti~r~~, r. Coszn~t~~~icufionu. ( 1 ) RnilroEids. ( a ) E s t e n t and cu~iditiorl. ( B ) O\vncrshi~t. ( 2 ) Roitds suld tr:$ils-extent rind condition. (3) W n t ~ r w a y s mid ilnrltors-extrst trnd nnripiibilits. ( 4 ) Trtel,hooe, telegmr>h,rudio and enblps. ( a ) E x t e ~ i t< , ulnll%rnt. and possihiiities. ( b ) Owtlersiii~~. ( 6 ) Air trrrasgorlrltioti. (a) Extest, eqlriprnent. ( B ) 0wnt.rship. ( 6 ) Postnl wrvice. f . I'ahlie tlfilitie8. (1) Extelrt. ( 2 ) Control nlrrl ~ l l l n ~ r v i s i o ~ ~ . 8 . I,ebor eonditiortx. (1) Unnngloyn1ellt sifnntion. ( 2 ) Wages, r~r~cl llorrrs. ( 3 ) Presenrc. nod e f f r ~ tof inhor orpiiniz,It'1o111;. ( 4 ) Social condltioos of Inboring ?lass. h. Ranitatim~. 4. 1'~ncnOI*xiIC SlTClATlOlr. a . ff,'ner,ll rncinl cha,nrlcrinfica. (1) Ty)w: sil~~rstitious--r;lcillllling-surci>til>le tcl i~ropsg:lnclilc.xcitnhle.
('2) Degree of e o r m ~ t i o n 17, )H)liticr.
(3) Fighting ohility. ( 4 ) Lrlngtlnge and Ainltv.ts.

4. Psrc?roI,cx:lo S m ; ~ ~ l o s ( ' ~ ! t ~ t i l l s ~ ~ c l . 0. Edacatio,,. (1) Pcrcrvti~gcof iililrrill:~.

( P I Collig111sor)- or voi~~nlery.
( 3 ) Ontlille of achonl s.vstea1. (1) J x ~ i t t of i ~ illlpmtbnt ~~ ~~~~i\.~rsities. c. Xt!ligiot~. (1) I'revnillug form. (2) E f f ~of t rrlipiorl on life <ofrxople. (3) Location of religious ceaters. d. Atfitodo 10l~<lrd u f h ~~rCOl,les. r (1) Fort?ignersin pa~l~rnl. (2) Jiell~hers of the oecnl,ilti<,n.

13-12. Attitude toward local officials and inhabitants.-a. Coilsidering the data o h t a i ~ ~ ewit11 d regard to the politicill situat,irrrr, decision must be made a s to innnediate clianges to be effected in the local go~~ernment. Civil control rntrst h suborclinrcted to military control. All the functions of the gorernmetrt-exect~tive, legislittive, or ttdministrative-wlletl~er of a general, provincial, or local character, cease under rrlilitary occupation, or continue only with the sanction, o r if deemed necessary, the participation of the occupier. b. The functions of t h e collectors of customs at all inrportant ports should he assumed, and officers of the ni~vnlservice appointerl to fill their places. No other civil offic,ials sllould be displaced except a s may he necessary by way of re~rrovalon accotnrt. of incon~petencyo r misconduct in office. ?'he policy shoilld be to retain the latter in their officii~lpositions and bold them responsible t o the military officers i n charge of the various areas within which their jurisdi~t' ion lies; the idea of this responsibility should be emphasized f r o n ~t h e beginning of the occupation. c. The follo'iving general rnles s l i o ~ ~ guide ld the cornmander of the machinery occupying force in his dealing3 wit11 t h e local govornrnc~~t. to the extent that the latter is functioning: (1) Acts of the legislat~treshonld not becoinr. effectirc. until a.proved by the military govel.nor. (2) The acts of city and rr~inorcouncils should likewise not beconle. effective until approved by the military comma~ldersh:tving imn~e,diate jurisdiction of the political subdivisions concernecl. (3) In general, a liberal policy sllould be preserved in all relations with the inhabitants a n d the greatest latitucle permitted in public and private affairs, consistent with the rights and security of the military forces and the termination of the occupation.

SWM 13-lZ

ar I L ~ T A I ~ Y GOVI'~ILS>IICX'I:
(4) More specifically, all local laws should be per~nitted to r e ~ r ~ a i ~ r i n full force ilnd effect, except as specifically provided by tlre ~r~ilitary governor. (5) All local civil officiills, except. those duly re~iiovedor snspeniled from ofice by t l ~ c militiiry govenlor o~ by t1lc military commander having immediate jurisdictio~~ over said offic~~ls, should be e~icouraged t o re111ai11 at their posts and be protected in t h e perforn~itnceof their official dut,ies. They should be required to take an oath to fuithfully perfonn their duties. ?'Iris oat11 is uot an o~rtlr of allegiance. (6) Vacancies t~nlot~g local civil officials by death, flight, or re~noval from office sl~ould he filled as follo~vs: (a) Where the local law provides for their srlectio~~ by t h e Presideut or by the head of a department, or for t l r ~ i r popular electiouby the rr~ilitarygoverrror. (b) Where t h e local la\\- provides for their selvctiol~by ib suboudinate civil official or millor legislative hdy-by the military comrrlai~der having irnmedii~te jurisdictio~~ over tlre said official or legislative body. (7) AILofficial of tlie hostile government who has accepted service under the occupant should he permitted to resign and should not be punished for exelxising s ~ ~ privilege. di Such official should not be forced to exercise his functions against his will. (8) Any civil o5cial found guilty of acts subversive of t h e occupying power should be subject t o trial and punishment by military commission. 1:J-la. Law enforcement agencies a n d public services-The proclitn~utionof the commander of the force allxiounces t h e extent t o vhich the local law and governmental syst,en~ are to be continned. It should request tlre inhabitants to resume their usual occupations. Public services and utilities sl~oulilcont,inue or resmne operations under the direction aud ~ o n l r o of l military :iut,l~orities. T h e administnttion of justice sl~oul~l he gi\,e11 speciitl attention. A11 courts, unless specifically excepted by the commrlnrler of the force> should b e permitted to function and their decisions ellforced except that: (1) No person in the service of the navirl forces and subject to naval law will be subject to any process of the local courts. However, writs of subpoena may be served with permission from t h e local commanding officer. (2) Persons charged with violations of military orders, o r with offenses against. persons or property of members of the occupying forces, or against the laws of war are to be tried by military tribunal.

SWM 13-14

XLILITARY GOVERI(1lEST

(3) Persons employed by or in the service of tlrc occupying forces should be subject exclnsivelg to the military law irrrcl jurisdiction of such forces. 13-14. Exceptional military courts.-Since a n s ~ v t court l inartin1 is a court. of lin~itedjurisdic.tion restrictetl by law to the trial of officersa n d men of the naval service, i t is apparent that, in order t o exercise t h e power conferred upon the force contma~~~ler when his duty is such as to place n11dt.r hirn a \rider jurisdiction in accorilance 117ith the principles of this clmpter, it is necessary to employ tribunals other than those useit in connection with the administration of naval law. Such tribunals have been referred t t ~ by the Navy 1)epartment as exceptionial milita~ycourts, and include the military cornmission, the superior provost court, and the provost court. A t such time a s the proclamation and supplemental regulations are issued, an order establishing n~ilitarytribnnals and defining their jurisdiction and procedure should be pnhlished. For a discussion of these courts and their procedure, see Naval Courts an(1 Boards. 13-15. Control of civil and military a d m i n i s t r a t i o n l a . The greatest efficiency of government will be acquired by centralizat'lon of policy and decentralization of execution. I n order to accomplish this, it is necessary that the actual administrt~tionof the military governnlent be decent,ralized by meuls of a special organization of military personnel. This special organization should be designed t o facilitate the military supervision necessary within the territorial subdistricts into which the occupied area has been divided for t h e purpose of governmental control. b. I n subdividing the area for the purpose of administering the rni1ita.v government, t h e preexisting political subdivisions, such as counties, townships, municipalities, etc., should be considered, and overlapping and mixture of these subdivisions should be avoided a s far as possible. The subdivision should also be. made so as to lend itself to geographic unity; that is, no district or area. should be separated from one of its parts by a, range of mountains; each should have adequate menns of communication and a fair share thereof; each should have a reasonable proportion of ports of entry and egress; and, each should have a reasonable proportion of the population, industries, etc. The principal feature of the organization should be that each territorial dist,riot or subdistrict. mill be placed under t h e control of a tactical commander, and that each tactical commander charged with duties pertaining to the supervision of civil affairs will

SWM 13-16
MILITARY GOYERNMENT

have his staff increased by personnel to be organized as a staff sectlon similar to tl~at previousl) referred to. c. T h e ur~~rciole of m a k ~ n s the tnilitarv commands coextei~sive with tla political sulnlivisi~~~~sof t l l r , c~vc.nl)it,~l territul.~ ~ P I I ~ 111 . sl~l~~rdi~~i~ft* t : i n ~ s i l i t I~ i s ti f i i I I I I ~ I ~ ~ ~ I 1148s.J I I . ever, t h e relationship between the civil a1lc1 military administrations sl~ould be such tl~at. should it becorne necessriry for the military forces to move on to a continuation or rene~val of hostilities, the civil affairs seetioil of the staff nmy, with il ~ni~rirnnrn of interference ~ i t the h rili1it:~ryadministration, remrtin in tile area and be capable of exte~rdilrg its spl~ercof activity to incluclc additional territory t.liat msy be occupied. So long as a tactical unit. rt.maii~s in a, particular subdistrict, its comrnarrder ill exercise the usual fu~lctio~ls of c o m m ~ ~ ~ ~ d tl~rough the ilge~~cies r~ormzrllyat liis disposal. I i o \\-ill exercise his syeci:;l functions relative to civil affairs through the staff vvhich has l~cu org:~l~izecI especially for that purpose. 'The Officer in Charge of Civil i\ff:lirs in each srva or distriot, together wit11 his staff, sllould b6 subject to supervision arld coordir~ationin technical and routine mritters by the Officer in Charge of Civil Affairs !lest I~igllerin tile hierarchy of military go\reri~inent,but nil orders inrolving annou~~ce~i~ er~ ts or cllal~ges in policy, or affecting personnel should come through the military commar~der in the usual way. 13-115. Public utilities.--a. Municipal water \vorlcs, light and power plaints should Ix permitted to remain o&n and fuilctior~as in nornlnl times, hut sl~ouldbe supervisetL by the officer 011 the civil affairs staff haviug jurisdictiou over public works. Payments for public services should be m:ide in t h e usual manner, while appertls in the matter of rates, wages, etc., should be referred to the military governor. Wilful damage to, or interference with, any public utility sl~oold be considered as :In offense against the occopying force. Railways, bus lines, and other public c:rrriers iieeded f o r military purposes may be seized and operated by the public ~rorlts officer of the military governor's st:lff. This officer is also responsible f o r the upkeep of the highways. 6. A l l telegraph and telephone lines, cable terminals, and radio stations, together with their equipment, may be taken over and conducted under the supervision of t11e force communication officer. He should prescribe which will be operated by the occupying forces, which closed, and which will continue to be operated by civilim companies; and, in case of the latter, may requisition the services o f , the personnel, whether individually o r as an oi-ganisation, as may be
7.

10

deemed advisable. The use by civilia~rs of telegwpli, telephone, and cable lilies and of radio systems should ! x permitted only under regulations issued by the force commander. 13-17. Trade r e l a t i o n ~ h i p ~ Ships a. and shipping should be treated according to the rules of war. The normal port swvice should be interfered with as little as possible. The port regulations in effect should so remain as long as they are consistent. v i t h the orders issued by the military governor. The occupying force may take over a11y ferry o r water tra~isportatioriregtrrded a s necessary to supplement otlrer tmnsport:~tio~~ li~res. b. Tlie general polic,y of tho military gorer~~inent should be to errcourage, foster, and protect all citiee~lsof the occupied territory in the energetic pursuit of legitimate interior a.nd exterior trade relationship. It slioulcl be 11111aafulfor inhabitants of t h e occupied territory to engnge in any form of traffic wit11 the enemies of the occupyilrg forces, o r to engage i n colnlnerce wit,ll foreign states in contraband articles of war, or to export money, gold, silver, jelvelry, o r other similar valuables for the tinlo being. I:%-18.Mines and quarries.-Mines and quarries sl~ouldhe permitted t o operate as i n peace except that all explosives on hand shonlil be reported to the local military representative. The. manager of a mine or quarry should be held responsible and the explosives are used only for proper purposes. Whwe t h e stock is large, a guard therefor should be furnished by the loc,al military commander. Requisitions of local military commanclers should be given priority over all orders at mines and quarries. Quarries of road material in areas or districts may he exploited by the local military commander. 13-19. Public revenues.-Generally, the policy of the military government should be to divert no public revenues from their normal uses except to defray tho legit:imate expenses of the military government. Taxes, excises, and custom duties collected at. the current legal rate by apncias already operating, or otherwise provided for in orders issued by the military governor, should he turned over to t h e military government for accounting and disbursement according to law. Supplies for the forces of occupation, and the carriers of same while employed as such, should be exempt. from taxes or other public revenue charges of any nature. 13-SO. Requisitions and contributions.-a. Requisitions for supplies required by the occupying forces should be issued under the supervision of the military commander. They should be made upon the officials of the locality rather t h a n upon individuals; they must

17

SWM 13-18
allI,l'('d\CY

(iOVtiiiS\ItiST

In! P I ~ R R I I I ~ ~ in ) ~pro~u~riir~li R to tire rwl:lrccs of the ~onntry SO R$ t ~ t ari~icltir~~ie~:e~s~ary cli.;rn~n.; : I I I I ~ t11o ~I in1iabit:ints. ~ They should bn Otl~erwise~ rc~ceipti; sl~oalcl 1 x 1 pirc,~~. pitid for ill cas)i, i f [r~t%sii~l(:. 6. ~ < ~ l l i ~ i b l t rn:~y t i ~ ~It11vf1111y l?i 1161levied &gfiinsttile itlir:~idt~rlt~ I I ~ :~utit<~rity of the olilitnry gcrrr!rtnrl- or tile mtnnrander of tllo O C C I I I I ~ ~ I I ~ force (I~ut not 11y a snlw~rtlitr:~tc). for tlrt: follo\virrg purlwlscs: (1) To 1r11ytho ctal of tile military government during the occri11:ttion. ( 2 ) O~nr~mnsiitio~i for tllr proter~lion of life rind lrropcrty, r~niltho ~ ~ ( ~ s e r v t r of tio l ~ unclev rliflirr~lt orcler circnerstnoces. (3) As R fitre i l t i l ~ ~ i ( ~r[)otr ~ d tire ocrmrrntoit,y rrs ir \v11ole for :~cts itijtrrioo.i to tho oecul)yirrg force. c. Cc~ntriirutio~~s s l t c ~ r ~t l~~t lsX ~ I ~i o I u ~ ~Ilike l tnxt.s, nllil receipted for.. 011ia rnc~tlic~l r l f c*silctir~g cotrtrilt~ttiortsis to trike. over tile! customs Ltottst!s, thrts cotitrolling tltv rc:r.elrties fronr i r n j ~ ~rccei1)ts. rl I:&-21.I'ublie iind private property.-l'rtblic buildings ancl public I".<rfn?rcy of tlro i~:ctrl~ie~l iriditr~ticrnsn~rd co~nttq.,exct~[)tcl~arit.n\)le tircixcr cleivtecl to n4ipi111ts, lite~iry, erluentionnl, :rnd s:irtit:~vyI)II~IW)XS, I I I : I ~ bc! sc.izr,cl :knd usctd by tI1c1. form-s i l l tltc nrurrrrIbrof lc~t~st~lrol~ler. , litlc does rtcrt ~ r r r s s tcr tire occn{ryingxrv~r~?i gnty. Otl:(!r I)t~ildings nrc> riot, t o be ita:<I cxccapt ia cirm of r!nter@ncy. 1'riv:rtc: l~rolx:rtyn~tibt l a respe~led. l:l...%2 E:mployment of inhaltitants.-+I. St,rvices of tho inhabit,. ants of i~c;cc:rtl~ictl tc?r~.itory rnny tm rrccli~isitior~~vl for tho lreods of tllc force. Thefic?rvill inclr~dtttt~o se.rvices of prclfessional nlclr r,rzci~[tyi~~p : I I I ~ tr:idcsrnc~n,srtclr as R I I V ~ ~ + I I I I SC , ~I~IWI~~ brrtchew, ~PH, burborn, etc., c~t~tlrlitytx~.i of ~ I R nlr~ctric , ligltt, ntrcl ivuter works trritl crther piiblic tit iliticqa. l'110 ofiici~ilsnucl eml,loyc%s of railwn~ys,ounuls, river crr co:r~ta,lstcrrtrtxl~ip rr~~nl~tr~ric~s, postrrl and siorilar tt4eprrtl1l1, telepl~o~te, st!ri~ic,cwniey lx: rt~c~rtisiti~~rie~l to pcrhrvnr tl~eirdntic!s so long as tho clt~tictu clo not, dirc:ctly co~~cev~r opnrr~tions of vvrrr agnirrst. their ontt c.irr~ttlry, ~ n t fl~c!rct~y l violr~te t lie Ilttlrs o f Lttrtd WT~trfurc ns recoylireti Iry tlirt Ilnitt!d Yl.:tlcts. %. Tile prol~ihitio~r apttirist forcing ttm inhnbitnnts to l:~kcpart irt ol~orzationn of wlrr nglrilixt. ttloir own cowtry precltrdes requisitioning tt~c.irwtrviccn rc1n)n works cliroct,ly pnrmoting the arltls of tlttt >Tar, xrtch 11s the co~~strr~ctior~ of forts, fortifictttions, R T I er~trenctin~er~t~; ~ bnt tilore is no objection to tltair being e~aploymii o n such work volr~nlr~rily h)r pay, except the milibtry reason of pmVc!nting information coacxrning audi work frorrr fulling uito the bauds of tilo enemy.

SWM 13--23

13-23. Police and elections.-'l'lie ci\.il police force may be conti~iuerlin operi~tioni n conj~~nction with the military forces and the members thereof xriay be required to shoulder the burden of enforcing certain ndditionnl police regulations imposed by tlre various military comma~iders. Elections may be stispended or held a t tlie discretion of the military governor; and he may regultite such electioxls to avoid fraud, disorder, and intimidation.

SWM 13-24

APPLICATIONS OF PRINCIPLES TO SITUATIONS SHORT

OF WAR
a .

Page

(:rserxl ronsiderntions
What lnmn il~rjis~..~
~~

13-24 . . . . . . 13M.5

21 21

13424. General considerations.-The history of our Government indicates that we l~aveoccupied territory and establisl~edco~nplete military contfol over such territory in time of peace a s well as in time of war. I f war has bee11 dealnretl, the estnblishn~ent. of a n1ilit;lry government over the territory of the enemy occupied by our forces gives rise to very few questions. However, vhen military government is established over a foreign sovereigu state or a portion thereof, without Congress cleclaring war, that is, when the rlatire inlrabitanfs of the country occupied are not considered enemies: i t brings np t h e question of whether or not the laws of war can be legally applied. Sac11 situations have presented tltomselves in the past and will probably present themselves in the future. They arise from the policies of our Government which dictate mhat our attitude should b e tomarcl assi.3ting our neighbors in maintaining peace and order ancl in protecting the personal and property rights of our own and other foreign nationals. Wl~en we intervene i n sucll cases, our action will always appear to many, espeoially those of t h e country concerned, as a quasil~ostile act and they will be ready to protest and criticize the conduct of the n~ilitary governnrent in all its functions. If, a sm e are taught, a military governor, even in time of war, should be careful to mnke his government humane, liberal, and just, because of the undesirability of making a return to peace difficult, how much more this principle must apply rvhen there is no war. 13425. What laws apply.-If the commander of tl:e force of occupation establishes a military government and there is n o war, what laws can he apply? He cannot apply the lalvs of our own country in t h e occupied territory and he ci~nnot accept and enforce on the laws of the occupied territory. Our own comtitot~ion cannot be made t o apply to a foreign territory, and tlre existing laws in the occupied territory manifestly will contain no provisiox~s which will guarantee

SWM 13-25
SITUATIONS SHORT OP WAR

the security of the forces of occupation, tlieir instnllations and material. The fact ren~ains that. the coinmander must govern nrrcl lie must utilize a militaq form of coi~trol. Therefore,, he will be justified ill adopting ally reasonable measures necessary to carry out tlre task or missiorl that has been assig~lecl liim. Whether his government. has declared war is no concern of his-that i s EL diplomatic and interni>tioiial niove over which he has no control. The 17e1ynature of his mission de1n:inds that. lie must hare absolute p o w e d n r Power. Hoverer, as a matter of policy, tlie more rigorous war powers sl~ould not be enforced. Coiitributions, requisitions, treatment of war traitors, spies, etc., sl1ot11cl not be more rigorous t h s n absolute, necesbe sity demands for self-protection. T h e commnniler's policy sl~ould t.o enforce the laws of wiir but only to sncll extent as is absolutely necessary to accomplisli his tasli.

SMALL WARS MANUAL

UNITED STATES MARINE CORPS

1940

CHAPTER XIV

SUPERVISION OF ELECTIONS

UNCLASSIFIED

UNITED STATES
GOVERKYENT PRINTING OPFlCE
WdSAINGTON :1940

TABLE OF CONTENTS
Tllc
Sniall
~ I1 I. 5 chaplers as

Wsrs M:LIIUIII~, V. S. Mari~le Corps, 1!140, is ~)ublisl~ecl follows:

11. OHGt\lUIZhTIOS, 111. I,OGIS!L'ICS.
IV, 'J'I<AINlXG.

C%s,t~.,rh:ttI, l . ~ ~ ~ ~ ~ l I ~ ~ I . ~ ~ . ~ ~ l ' I O N .

IS. AVIATION. S. IIIVEH OI'EIlbTIOSS. X I . I)IR.\ICM,\MBNT 01 ~'OI'UIIBTIOS.

SIT. AI<YBII NATIVE OROAXIZATIONS.
XIII. JIILIT.~IIY GOVERNMEXT. SIV. SIIP~R~'1SION O F ELECTIONS. S V . \VII'HI)IbiWdL.
1x1

UNCLASSIFIED

SMAI,I, WARS MANUAL

UNITED STATES MARINE CORPS

SUPERVISION OF ELECTIONS
['a?.

pago

SECTION I . GENEI~AL . . . .
-

11. P E R S ~ N N E I , . . ~ . ~ 111. ELECTORAL MISSION IV. NATIONAX, BOARD OF ELEC-

14- 1 to 14- 7 14- 8 to 14-15 14-16 to 14-28 to 14-33

1- 9 11-15 17-27 29-32 33-35

TIONS. .-. . . . . . . -.-..14-28

V. REGISTHATION AND VOTING. 14-34 tO 14-36 v

SWM 1 4 1

SECPION I

GENERAL
Pa1'.
Pnee

I~~t~ro~lttction ....................... Requcrt, lor supr!rsisio~~ ........................................ Defi~ritions..................................................... Ilr~spor~sihilities of eir:ct,oral mission.. ............ Intir~rirlntiotrof vul Militnry and 1,oliec Il~ieiltiral I>~.i~ciiccs ..........................................

14-1
14-.2 14-3 14~-4

2
2
3 4 4 6

14--5
14--6 111-7

1-&I. Introduction.-(7. 'I'lle CTovt?rnine~it of the T7niterl States has st~pervisrdtlrtr l~rrsidetrtialor congressional electio~ls of neid~boring rel)~ihlii.s on 12 difcrei~toccesions. By accepting the responsibility of the Tinitecl S k ~ t e has s settled l i ~s rncll s:~pe,rvision, ilrr. Govet.o~ne~~t of sc+rio~ls politdcal dist,nrbances and assisted in the r~~cstahlisl~ment law nirrl orilcr. S a n g u i ~ l a ~ y rwolotions were stopped nncl countries rescued from a state of civil m r . Assistance rendered by the Govsrnirlent of tl1e Ul~iterlStates was, in most, cases, the direct. result of political eleme,~lts. 111 some instances, the rcquests of t h e conflicti~~g aid was given in order to prrserve pence and to settle co~ltroversies in accorrlnnce will1 existing treaties. b. Tho saparvision of a n election is perhaps the most effective peaceflll means of exerting an impartial i~lflne~rce npon the turbulent. affnirs of sovereign states. Such supervision frequently plays a pri~minent role in the diplomatic endeavors that a r e so closely :~ssoci:~tcd w ith smitll war activities. Due to the ~ieacefulfeatures of elnctol;:l supervision, there will prob:tbly be inore of this forrrr of aid rendered neigl~botingrep~lblicsi n the future. Such action is in keeping \\.it11 the p o ~ ) u I >rev111sion ~r against anned intervention in tlie interiial :lff;iirs of otller countries, :md supports the principles of self-detenl~i:r:ttion and iriajority rnle. c. l'lrei~ever the Government of the United States assumes the responsibility of supervising the elections of another sovereign stnte, it cornpromises its foreign 1)olitical prestige as effectively as by any otl~er act of intervention or interposition. There is, perhaps, no other service \vliicl~n:ny bc rendercd :I friendly state, the motive of which is more actively clrallengecl o r criticized, as an endeavor to control the inter~yalaffairs or the ~mliticaldestiny of that state.

S W M 14-2

GEBERBI,

T h e duty of electoral supervision is nor~nally~erformed by militilry a n d n:~val personnel. 111 addition, the elcctortil supervisioil mill often bc conducted under tlie protection afforded by Unitecl States military or naval forces assigned for that specific duty. A ki~ovledge of the subject of electoral supervision will be foiind useful to all personnel engaged in small wnrs oprrat,ions. 1&2. Request for supervision.-Tlie supervision of elections within a sovereign Stilte is iiorrnally undertaken only after a formal request for such snpervision has been nlade t o the President of the United States by tha government of the foseign stnte, or by fisponaible factio~~s within the f o ~ e i g n stnte, provided no ila facto governiileilt exists. T h e fonnal request is usually accompanie~l by statements from the principal oiiicinls of recognizeil political p:lrties t o the effect that they desire tlie rlectoral suprvision, that they ledge. tlieir active aid i ~ n d support in cooperation v i t h the proposed c~lectoral rnission, and that they agree to exercise their irrAoeiice over all thrir followers to the end that a peaceful election may be held. 14-3. Definitions.-a. The group of individuals representing the Government of t h e United States that. proceeds to the foreign country concerned to supervise a particular election in accordance ~vitli sgreements b e t ~ ~ e e n Government of the tTnited States and the foreign the government is known as the. E ~ C I O R A L MISSIOX To--_-_--------_-( E I . ) . It is normally composed of officers and enlisted personnel of the military and naval services of the United States, anpneiite(1 b y certain qualified civilian assistants. b. The comriiittee that directs tmd controls the national electoral machinery and electoral procedure of the country concerned is known OF ELECTIONS (N. B. E.). It is governed by a s the N 2 m . \ r ,BOIRD t h e existing elec,toral lams of t h e country concerned, and is nornlallp conlposed of citizens of the country. During the supervision of a particular election by the Government of the United St:ites, IL member of the Electoral Mission serves as a member of the National Board of Elections in lieu of one of tlie menibers who is a citizen of t h e foni,mi country. I n the past, it has been customary f o r the Chairman of the Electoral Missiorl to serve also a s President of the National Board of Elections. c. The committee that directs and controls t h e electoral machinery a n d electoral procedure within a Department is knowri as a I)EP.\RT%rExT.m BOARD OF E L ~ I O X BA . member of the Electoral Mission serves on this board in lieu of citizen member. The Department is a political subdivision of the country arlalogous t o a State in the

SWM 14-4
(;l~xl~i~~~I,

United States. These political s~ibilivisions are someti~nes l<no~\-n ;IS Provinces. d. Depw~~ling upon t l ~ e further politicttl snbdirision of tlrr country concerned, minor boards of election are set. up. S w h boards nxzy he knosn as CANTONAI, BOARDS oF EI~ECTIOXS, DISTRICT 1 3o~nos OF EI,ECBOARDS nolvs, or C ~ J I ~ U N A L OF ELXTIOX~. I n eilch case, tlle politiv:~l sr~bdivisionsof tlie country concerned will be the governing factor in the organization of such minor boards. Normally, s District. (Arrondissement) is a political subdirisiorl of a, Del>nrtrnent, (Province) politia~lsobanalagous to :I Count,y in the United States. A furtl~er division of the District (Arro~tdisseinent) is knon,n a s a Cm~ton (Commune) and is analogous to a Ward o r To~rns!~ipi n the United States. 144. Responsibilities of a n electoral mission.-IL. A iLfreeand fair" election implies t l ~ e nnrestrained popular cl~oics of tlre 1~11olo r~coplcespressetl :lt t l ~ r1,011s by a11 IT~IO are lamfully entitled to suffrage. T l ~ e r e must be no restraint or reservation, either physical or mental, exerted upon any aspirant to office or upon any of 11is supporters, except those normal restrict,ions required for the preservntion of law and order. T h e fear of restraint may be real r~ndmitli sufficient. reason, or it may be imaginary and \vitliout canse,. I n either case, every effort must be rntidc to relrrorlo the fear uf restraint. It is only by a stodied irnl):lrti:llity on t h e part of t h e Electoral Mission that clntrgcs of favoritism can be t~voided. 6 . It is well to consider the internal conditions that make the electoral supervision necessary. Tbe electori~llaws, t h e economic conditions, and the educational problems of the country concerned will often be found to be factors. The Electoral &iission can actuully institute few permanent electoral reforms during the limited time that. i t is present in the country. It can, l~owever,demonst.ratu a method of conducting elections that may serve. as a nioclel to the citiaens for future elections. A free, fair, and impartial election cannot be held in a country tor11 by civil strife. Before such an election can be held, the individual must be made to feel safe ill his everyday life. The presence of United States military and naval forces is often necessary to furnish t h a t guarantee. c. The Electoral Mission can assume the responsibilit,~ for the*conciuuct of a "free and fair" election only within the clefinite li~nitntions of the authority granted it and the facilities made available for carrying out its mission. There may be political and legal restlietions over which the Electoral Mission has no control. To guarm-

S W M 14-5

GR%fi;llhI~

tee a "free and fair" election, tlic Electoral Mission sliollld hare 'hc necesary authority orcr the executi\~e~ legislative, and judicial clepartments of the gorernnient to lnalie effect,ive its legal decisions. It must also have the act,ive cooperation, if not tlie actual control, of rnilitnrg and police forces sufficier~t to enforce its rulings. 14-5. Intimidation of voters.-The employn~entof military and police forces for the protection of voters vill often be a vital factor i n the con(1nct of a "free and fair" election. The selfish persons1 and political pnrtisnnship of i~~dividnals, g o u p s , or political parties force, m a y incluce them to use vtirious and suudly methods, inc,ludi~~g i n an attcn~ptto influence the outcon~eof t h e election. G n w i l l a elements mag be encountered, whose :tnnouncerl pnrpose is the preelection. These guerrilla elernents may be vention of an irrlparfi~l banded together on their o \ n ~ initiative for t h i s announced pnspose', o r they mag he i n the hire of some political group or party. Wilit a r y nrnl police forces are err~ployecl t o prevent x~iolence to persomlcI condocting the elc!ctions a t voting booths, to prevent. the destruction o r seizt~re, of ballots and electoral records, and for g o u e ~ d prdection of the populace from guerrilla activities. Protection is furnished t h e inhnbitnnts i n towns, in cities, and along lines of communication i n order that registrants ancl voters may n o t be prevented from registering or voting due to threats of bodily violence while proceeding to and from registratio~l m d polling places. I n some cases t h e homes of voters nlay be t,hreateied, and t h e safety of their lives, families, and property may he endangered a s a result of their announced desire t o exercise their right of suffrage. This is particularly. true in the caw of mem1)ers of campdgning (propaganda) parties normally anployed in countries t h a t do not enjoy good comnrunic:~tioiifacilities. The, foregoing measures of violence may b e attempted by inclividunls, small gronps, o r large bands OF p1wrillas. A large organized group 1na.y make raids into qni& sections o f the country in order to frighten the peaceful inhabitants and disturb the po:~ce tc) inflne,nre the elections i n the locality, attack isolated posts, ambush 1)atrols arid conduct ot,lier operations of sach nature as to demand the employment of a con1par:rtively large military force f o r prntection of the inhabitants. 14-6. Military and police measures.-a. It is essential that the Chairman of the Electoral Mission have military and police forces available in sufficient number to insure peace and order during the election campaign, the registration period, and the voting period.

SWM 14-6

ORII.;L:AI,

TVitliont such forces, i t may be Irigl~lyimpracticable to assure the elt?ctorate of a free, fair, and imp;~rl.ial election. 6. During tlie e1ector:rl period, Unitetl States ~iavaland militnry forces already stati(,necl i ~ r the couut.ry may be augmented temltorarily by troop cletachrnellts from the corrtiriental Uuiteil States, by detathmerlts from ships of the Ulrited States Fleet, or olhers irr~ried forces of tlre United States. In order that srlch uuits Intry be re:rdily avnilwbk, for recall or return to tlreir 1rorma1statio~is for duty and it \ d l usually be ndviaal~le t o enrploy to save time arrd tr:~nsport:~tion, sue11 ten111or.arily att:rclrcd troops in or near tlre larger bases or alollg lines of commrrllici~tio~r (~.ailr.oads, automobile roads, lake, ar1(1river boats). Veterair troops t.lr:~tare accrrstonrccl to tile country :rnd inIrabitants are e~rlployedill the inore caxposeil district:^. Srrclr :~ssigirrrrent of troops will promote more cfficieut performarrn? of duty. c. In some col~ntrics, tlie1.e mny be : i native ci111stabrrlary o r sii~lilar orgr~lizatio~r tunder tlre cotnmar~d of United St:ltes or native officers. ~ l ~ e n c ? vpracticable, er the larger poition of the military a n d police duties reqniretl to goarantee a n inrptrrtial election slrould be provided by t.he ilative military organization. This force sl~ould be employed to itsmexitnnm capacity before employing United Stales forces. Tlre display of Urrited States :Inned forces at or near the polling placcs is kept to a minim~nn in order to avoict the charge that tile Government. of tlro lioited St,ates has inflireuce(1 the election, or placeti favored in office by the employment, of militz~ry forces. However, candidt~tt:~ tho safety of Electoral Mission personnel must be considered at all times. Tlre use of the native niilitary osgaiiizatioii places the resporlsibility for law and order where it properly belongs. I t also tends to give the electorate the impression that the election is being conducted under the control of their own country. Care musl be exercisecl to ~ r e v c ntlre t native military orc?unizi~tiou and inclividuals P composirlg that orgnnizirtion frorn exlribitmg any partiality. There cmrnot be a "free and fair" electio~r if the use of tire ~rative conshbudisplay of force. If the orgmization lary dege1rrr:rtes into n pnrtism~ is not under tlie in~niedi:rtecomrnarrd of United States officers, it becomes even more necessnry b supervise its couduct during this period. d. 1,ocal police are ge~ierallypolitical appointees and, as a rule, cannot he dependeil upon to support n "free nncl fnir"e1ectiorr. Their local, political, and personal interests ill often result in prejudicas and injust,ices, which will co~~ipromise cfforts for impartial control. If they arc not federalized, nonpartisan, and under

SWM 14-7

ne:it,ral superior :~rrtI~orit.y, it is better to collfine the duties of the local police tkgencies to their nor~riiil functions of preserrillg the peace ~ I Itheir localities, thus furnishing indirect support toward t h e conduct. of a "free alrd fair" election. Their actions sllould be ohserred for any s i p of lx~rtialityor improper act,ivities that may tend to influence tlie outcome of tlie election. I n some instances, it lnay be deomed :tilvisable t o suspend the civil police and similar organizations during tho period of registration and election. This m;ry be do110 h y decree or ~ t l ~ legal e r means. Their duties are then temporarily assigned to the 11:ltive military organization. Armed guards frnlr~ the constabulauy forts, nray he sttntio~~ecl a t rmlliny places t o assist tho regular civil police, force in tile m:linten:~nce of order. \%qren so employed, the me,rnhers of tht. cor~stabultlryforce are given civil police power :inil m:ty make arrests f o r ordinary civil offenses. e. It is son,~etimes desirable to station a n armed member of the, United States forces inside each pollirlg place to protect the electorn1 personnel., to guartl the electoral records and ballots, and to preserve order ~ ~ i t h the i n building, thus relieving the Chairman of tlie local Board of Elections (usually a member of the Electoral Mission) of those responsibilities. The latter can then devote his entire attention to his electoral duties. A t times, it may be necessary to wsign cletachment,s of United States troops1 to protect electoral personnel and records at polling places and ~vliiletraveling between polling places and departmental capitals. f. During the electorul period, and particularly on registration days and the d a y of election, aviation is employed to patrol polling places in outlying sections. This action is particularly valuable in t h a t it gives tarigible evidence to the voters that they are receivii~g protection in the exercise of their civil rights. Airplane patrols also furnish an excellent nleans of cornn~u~~ication with polliirg places. They a r e :I constant i11rea.t to any organized attempt to foment disorder. 14-7. Unethical practices.-(I. In additiou to the military or police features nlrioli lway materially influence the ability of the Electoral Mission to guarantee a "fret! and fair" election, there are other elements that may operate t,o prevent that desirable result,. These elements may properly be groupecl under the heading of "political pressure" practices. Political pressure exerts a powerful influence in the conduct of elections since it reaches and touches every voter, whether h e resides in t h e capital or a remote district of the interior. This political pressure consists of practices of long standing in some cour~-

SWM 14-7

ORSERAII

tries, is estrcilrely diflicttlt to uncovrr, :rucl req~uires tactfrrl 2t11dl~aittslaltil~g cffol.1 to circ:tt~lr.et~l. b. 'l'lv ilrer~t~il)cl~t ('l~irf1Ssi.cutive nr:~yfind it po1itie:illy espetlient l o clc~cl;~rr inartin1 law ill w e t i ~ ~ of n sthe country at the beginning of tllc electio~~ period, pi~itrg :IS :i re:isc>n,the preser\,atiot~ of law a n d order. Tlte action rni~ylrirve ]to roliition to the military situation a t the time, and inny possibly be take11 i l l spite of recommendation against. it by tlie nrilitary authorities conceriied. As a consequence of such executive decree, the duly elected civil officials are autonlaticnlly oustecl fro111 office :rnd replaced hy presidorrtial appointees. Uy carrying out the prwess to its logical conclusion do\w to and including gaiue ~vardens scattr?lrrd throughout the province or ~~rovinces, politic:~l henchmen, I\-illing and anxious to use every kind of pressr~se on any voter \vho niiglit be opposed to the national administration, are, in a position to interfere radically with :in impartial election. This is a most unliealtlrful condition under \vhich to attempt to conduct a free and fair election. B y appealing to the sense of fair play of the executive, i~nrl through other diplomatic endeavors, i t niay be possible to have the decree rescinded. U~lless the civil oficials t h a t have been appointed by esecutivc action are removed from office, howe~~er, the effect of l~avitig such individuals con(i~iuei n authority is likely to be deleterious to the conduct of an i~np'artial election in t.he sections affected. c. Public laiids may be distributed to citizens wit11 a tacit understanding, t,littt they will vote for the candidates of the party controlling the distribution of the land, an act which is clearly contrary to the laws of tlie country. By this process, a political victory for the party dispensing the laud is practically assured in a district whose inlmbitants to be about equally divided between two political ltnrties. are kno\v~~ Investig~~tion and exposure o f this practice, coupled with dipionlatic efforts on the part of the Electoral Mission, will serve to put a stop to this activity, hut i t is likely to be too late to prevent full political profit from being derived. d. 1 x 1sonic countries, it is a n established custoin during electoral periods to arrest nrcmerous citizens of tlle party, not in power, for old offenses, for charges of minor infririgenient of law, for honest political activities, uird e\run upon charges that have absolutely no foundation wlmtsoevor. I n accordance with the law of the country, such citizens a r e autorr~aticallydisfranchised, due to their having been arrested within a given period prior to the date elections are to he held. This action gives the party in power a powerful weapon in influencillg the resnlt of election. I t is also not uncommon f o r tlie Chief Executive to

SWM 147

Gli.XE11AI..

htrnish proi~ri~rc.~~l 11oliticll olq)orrnirs fronr the n,umtry, t l t e r e b ~ ~ r i i l d i ~ ~ g (Ile rlarty i l l po1vcr of solrre of its intellipnt ol~l~ositiorr. iknotlrer penliciolls cilstonl is the c.~~~l)loj~irent of the "~varriiirtfor arrest." ns n Inoalis of de\)riring citize.11~ of tltrir constitutiorxrl right of s l ~ f l ' r n ~ . By this nretrns, citizens may he l~rcn-ented fro111roti~lg or lroldi~lg otlico during tlrc tirrre the ch:irges are pending sg:~inst tlle~~i, no e\-r?rr tl~ougll arrest nlay be ~ilatle. Clliirges lirny c o ~ ~ roal e r or iinaginitry offenses or cl.inlcs allegctl to Iiavr! hrcil committrd on 11 ~Iibtemany yenrs h,fore. Tlrrough dilrrtory procedlire 011 the p:rrt of the civil courts, trial of suclr oases inay be delayetl begorrd the registratiori period, thns effectively tlisfranclrisu~g tlie alleged otl'e~lder. This rnethod is employecl of tlrrs party ilol in i~on.er,since i t is a princip:~lly:tg:tinst meir~lxrs difficultrnittter to slyear ont >I"u-wrr:ri~t for arrest" against rrrornbers of tlre party iu powcr clt~e to t h e partisnnship of the civil officials charged \\-it11 this duty. By exerting (liplomntic pressure, it may be foun(l of n practicilble t o Iiare tlre ~ltitionrrlI:i\rs arnended by tile i~rsertioi~ stntute of lilnitatior~s r~rol-itling tlmt ' ' ~ ~ ~ a r r a n for t s arrest'? for civil offt.i~sc!sexpire aiitoii~:~tically lifter 2 years a r ~ i lthose for erimiirnl offelrses after a period of 5 years, provitlt?cl the civil ai~tlrorities Irar<? taken no steps to bring the case to trial before t,he expiratio11of sucl~ periods. e. Public utilities n~rdother agencies ovned or controlletl hy t l ~ r goverinne~~t rriay bt; nsed i n a discrinriilatory marlrrer f o r tile berre,fit of tlre ptrrty in power. Campaign (propagand:~) parties, voters, workers, and othcrs 17110 may be of :msistimeo to the party in power may he fourld io lravc free passage granted them on milroads, river and lake steamships, airplane lines and s11burb:rn street car lines om~ied by or a ~ i ~ t r o l l e d the government. T l ~ e party in power may employ govenln~entt,rncks to carry rotors to registriition and voting l>lacrs, denying such transport~ationto rnembers of the party rrot in power. I'roriclrd the gorernment owns or operates the telephone, telegmph, radio, or ~ o s t i tservice, l tlre party in power may be found to lrtivn full and free use of tliesc public utilit,ies, while the opponents of the party in power (lo not. Telegrams s n t and paid for hy the party not in power rrlay he prrbled en route, and delayed iir delivery. IVl~endt.livered, the Inessage 1nay be so cl~itngedfrom1 the. original that. it contains ail ent,irely cliffererrt nlerr~~ir~g of from tliat int.tnrt1ed.
IvI~nlbers coil-
the p:trtp not it1 1)olvcr nray he si~hjecteclto delays in teleplr<~rrr rrections, i r i l.l~e tri~~~snlission of telrgrap2iic
arlil raclio messages, as
well as clolny ill the delivery of 11rra)n:tl inrtil. h tactful appettl to

SWM 14-7

CESERAL

the seilse of fair plaj of tlre g o ~ c ~ , r t ~ iofficials n e ~ ~ l coilcc~ri~e~l is generally !)lr~l~ivti\.r it1 tcl.nlinatilig st~ch practices. f. Jtlst prior to rlectiotls? j~nblic~vorlts project,^ ~rlaybe uiirlertaken in districts of donbtfnl political cornplexioii or in those rlistricts where the pnrty not in power is k11on.n to have otily a slight majority. Workers of the pnrty in power may be imported illto such districts t,o \vork on the projects in order tli:lt tliey nlay vote in t11:~tdistrict, such workers normally beino tr:~nsyorted from districts vitere a majority P for tire p t ~ r t y in pov3er1s defi~iitely :issured. Since the ~\,ork~r resides in tlte clouhtfil district t ~ the t time of registration aird election, be is ctititled to vote tllcre, and thus IIIRS gain $1. clear irlajority for the. ~~:wtjr in po\ver. Tliis situatiot~ rriay be inet by imposing a reside~ltial vesidence in a given (~nnlificatioit for voters. For taxample, G nli~i~tlis district. just prior to registrittiori irr:ly b e requirecl as a qualification to rote in that. district. This p l i f i c a t i o n nlny \le a p a r t of the electol.;tI law of the a~liirtry, o r i~itiy he iiilposeri :is a11 irlterpre,tatio~l of tlie lair by decision of tho Natioixil Uotirrl of Elections. [I. I 1 1 some conirtries, t h e gorenrmr,~lt has :I monopoly on the manufaet~~r and e rlistrii~~ition of distilled liqnors. Tliis places a strong of the party ill power during the electoral period. wcapoii in tho lttinc~s 'rite govc:rt~ment ljarty inay clisponse free liquor :it i~olitical rallies in order to infliience t,lin opinioti of the rotors. This practice may be tllrougll ilie registmtion a n d voting period. Adlierents c~ontiii~~c~,cl lo t,ltu party in polvcr mtLy give liqlior to vot,ers of the opposite party on election day, and tllei~ nttelript to have them disqunlified due to their \vhen tliey appear st the polls to vote. By reilrtoxicated co~lclitio~r stricting t h e distribution niicl sale of distilled liquor to normal iilnoltirts, this situt~tion may he alleviated. Distilleries are padlocked, :IIICIail tln~(~nirt of liquor witlldrn\vn for legiti~nate sale to authorized dealers. T h e nmotint ~vithdramnis eq~vitlto the average \vit,licIrawn over a rt?akon:lble period as s l l o ~ ~ by n official records. T o prevent the fortl~ckr 11sc5of irrtoxicailts during this crocial period, stores and cafes (lispensitlg tlletri :rt retail are closed or prol~ibitecl from sellirig intoxicants oil rcgistratiou i ~ t ~ election cl days.

SWM 14-43

S E C ~ I1 I~N
PERSONNEL
PRP.

Past?

C1~aiairnw.n . . . . . . . . . . . . . . . . . . . . . . . . Electoral mission staff. ....... Commissia~~cd ofiecrs.-. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Enlisted personriel.............. Civilian personnel.. .............. Instruction of personnel.. ............ Replacements. .................................................. Pay and allorvances..............

144 14-9 14-10 1411 1412 1613 14-14 14-15

11 11 12 12 13 13 13 14

1443. Chairman.-Tlie. Chairriman of tlme I':lcctoral Nissioii is designated by the President. of tlme United States. Usually, he is a flag officer or general officer, ttr~dImolds thr title of Envoy Extraordinary azrd ~ i i i i s t e r Ploriipotentiary doring the period covered by his assignment to tlre Electoral Mission. I n orcler to carry o u t his duties i11 coni~ectionwit11 tlmc elections, he Irolds the. appointive position of Presiclent of the Natiormal Board of Elections of the foreign country coiicernerl. 1&9. Electoral mission staff.-The Electoral i\fission stnff coilsists of such officers as are required to carry out tlie mission in a particular case. Altlmollgh tlie size aiid se(luirelnerlts may vary to some estmt, tlie followi~mg tabulatio~l covers tlie usual staff req~~irements : Ch. . ~ir~naii. ' Vice Chairman.
Esec~itive Officer.
Secretary of Electoral Mission.
Sec.rettary of National Board of Electio~a.
Assistaiit Secretary of National Board of Elections.
Inspector.
Intelligence and Press Relatio~~s
Officer. Assistant Intelligence and Press Relations Officer. Leg11 Advisor. Assistant Legal Advisor. Cumm~~nications Officer. Disbursing and Supply Officer. Assistant Disbursing and Stlpply Officer. Medical Officer. Aides. 253980'-463 11

SWM 14-10

I'ERAOSSEL

14-10. Commissioned officers.-o. T l ~ eofficer personnel of the Electoral &fission should hare rank com~nensumtewith t h e importance of their duties. TVlwnever pmcticable, officers whc, !lave had prior duty with electoral i~~issions sl~onldhe selectecl for the more inlportant positions. i k ki~o~rleilge of the langrrage of the country concerned is one of t,lin most iniportnnt qnalificntions. b. Wliei~ United States forces are p r e s e ~ in ~ t the country concimied f o r the purpose of restoring la\\. and order, the oficers nssigncd to d u t y with the Electoral hlission should not be taken from the United S a t e s forces runless s~~itable replacelr~entsare immecliately nrailnl~le. I n ~ ~ o r r nsin:~ll al wars situations, n proportionately large, iinrnber of officers are reqoired, and tlle United States forces 1)rescnt ca~lnot be expected to have estr:~ officers availnblc. I n grneral, the qualifications for officers assigned the Elector:~lliisiion :ire i(1eutical v i t l i the qualificatioris required in the case of officers serving vith the United States forces. The selt:ction of a few of the. 1:ltter ofir~e1.sfor ciutg with tho Electoral Mission may be lrracticnhle. The rcplncnnent of a larg~ nmnber of tl~e officers s e r r i ~ ~ with g t.he ITnited States forces b y officers who are unacquninterl vith the local sit~~:ttion :Ippears to b e inadvisable (luring this critical period. 1&11. Enlisted personnel.-a. The most important qur~lifiration of enlisted person~lelselected for duty with a n Electoral Mission is fitness for independe~ltduty requiring a large ~neasureof responsibility. They should be able t o speak, read, and write the lixngaage. o f the country coi~cerned. Men selected shonld have a scholastic I~ackgronnd of a t least 2 years of hidl school, and preferably should be high scliool graduates. A clear record is an importnnl qi~nlification together with a r e p ~ ~ t a t j r for n ~ trtct, good jiiclg~nent,;;rid ~atience. F o r duty in Felnote areas, in districts known for their unfiealthful \\,here i t i s known living conditions, and i n sections of tlle c o ~ ~ n t r y guerilla bands operilte, i t is a decided iidvantage to assifin men who have previously served in those areas to electoral duty with the boards of ~niiior political subdivisions. Tlleir prior experience with the military ancl police sitnatioi~, in combating ~ ~ n h e a l t h f u condil tions, and in the procurement of food arid shelter, will enable them to assume their electoral clnties with less difficolty than Inen who are unaccustoined to their surroundings. 6. In the event that United States forces have h e n in t d ~ e country concerned for some length of time to preserve law and order, the majority of the enlisted personnel for electorr~lduty should be taken from among those forces. Since the employment of a number of men

on electoral duty will tend to reduce the actixrities of the forces engaged iii puroly military pursrtits, it is obvious that they must be replaced by :LII eqnal ~vllmberof troops from the contitlentnl United States or other source. Ir~asnluch as the electoral period is one which requires a maxialum effort in maintaining law and order, it mag be neccessary to increase the military forces drrring the electoral period. 1412. Civilian personnel.-.\. number of United St:rtes citilians should be irlcluded in the l>ersom~el of t h e Electoral h1ission. This is done to reduce the likelil~ood of the cl~arge thrtt the elections are being controlled by tlie military, a charge to \v\.l~icl~ an enterprise of this nature is 1)eculiarly suscnpt,ible. Sincn employ~nent of ally considerable number of qualified cirilin~is will generally be irnpractic;~ble due. to tlie espetlse involved, it rill be possible to nnl~loyonly t~ s~nall nmnber of espert legal ~~dvisors ant1 terl~nicttlmen, particularly individuals who have n~atlethe stucly of elections and g o r e r n r ~ ~theit e~~t life work. 1.413. Instruction of personnel.-As stated in paragral)li 1611a, one of the most important qnnlificatious of enlistc(1personnel selectecl for electoral doty is a knowledge of the language of t.11e cou~ltry concenictl. I 1 1 or(ler to i m p ~ o ~ that e kao~rledge,t~ language course is included in the instruction received prior t o t:~king over their electoral duties. T h e linrguage course is cor~fir~ed to the esse~~tials of the language, with particular e~nplritsisplaced upon vocabulary adapted to the particular req~~irements of electoral duty. In addition, they receive instruction in the electoral law and procedure. The electoral law is studied by sections. Each s e c t i o ~ ~ discussed in co~lnectio~l is with its historical btickgrotn~d, its applications, and that may haTe bee11 ilisclosec\ i n prior elections. The course covered by snclt s school depends primarily .upon the time available. and the need for t,he instruction. One month's instructio~~ may be considered the niinirniim time reqnirerl. A longer course of instruction n~ill probably to be f o u ~ ~ d be adva~~tageous. 14-14, Replacements.-T11e personnel of the Electoral, Mission xi11 have the same losses, clue to sickness and other casualties, as other United States forces serving in t h e same countiy. F o r the proper execution of electoral procedure, certain positions of the various electoral boards a r e filleil by members of the Electoral Mission. In order that their work may continue, trained replacements must be available in sufficient number to take care of the estimated number of losses due to sickness and other casualties. Losses among

SWM 14-15

FERSOSSEL

United States forces ~ l l o are already in the country ~ n n yb e used as a basis for computing the izldio of replaceme~lts reqt~i~ed. 1415. P a y a n d allowances.-a. The governmelit of the country i n which the elections nre being conducted ~lor~nally should provide a monthly money allovsnce for officers of the United States forces performing duty wit11 the Electoral Mission. This allo\vance is to cover extra expenses incurred in tbe performance of electoral duties. 6 . Wllell perfornling elector:rl duty in cities and towns garrisoned by Un~tedStates forces, enlisted personnel of the Electoral Mission m a y be subsisted with tllose forces. I f this i s impracticable, they should be furnished n per diem cash allowance for snbsistence and lodging. This allomance should be ample to provide them vith suitable subsidence and lodging, and sllonld be uniform for all enlisted persol~nel serving on electoral duty tlirouylv)ut the country.

Pres., N . B . E .

Vice Chair. ,AM. ice Pres.,Il .B.Z.

National Board of rllections

.Department

4 .

. ./-/
/

Xlectoral Piissian 2xec.Officer 4 ' / 'and Staff /

Cantonal Boards

Lenal

Yedical

Zlectoral etachment

LWir;M):

Authority and Cammication

Coomunication but no authority

FLTNCPIO??SO F ELESTOBAL idISSIOhT A N D

NAT IOIlAL BOARD OF ELECT10633

15

SWM 14-16

ELECTORAL MISSION
Fnr.

Chainnan ........................ Viceollair~nsn.. ..................... Execoti\.e olficer ................................................ Secrcta Inspector ......................... officcr. ............ Intclligcrree and press rolntio~rs Law off~cor......................... Comniunicat.ions offire.r..... ...... Disbursiug and fi,q>~ly <~Bicor. Medical ofliccr.. ..................... Aides.. Dopnrtxuentnl bo:~rriporso~~ncl.. ......... Cantonal board perso~inel
. .

14-~-16
14-17
14-18
14--19
14..-20
14-21
14-22
14-23
14-24
14-25
. . . . . . . . . . . . 14-.26
14-27
14-28

12-1G. Chairman.-a. After llis desiguatio~lby the President of the United States, tlle Chairman of tlie Electoral Mission visits the State Department, in Wasliington, D. C., and acq~~aints himself wit11 the history and the existing stntus of the situation in tlie foreign country coocerned. IIe is also informed of the policy of the Governmelit of tlie United States relative to the responsibility of the Electoral Mission, and the doctrine and procedure to be followed. He receives definite assurances from the State Department defining his authority, particularly in relation t o other diplomatic representatives of the C>overnment of the United States who may be pre,sent in t h e foreign country. b. The Cliairnian then visits the foreign country, accompanied by suc11 espert advisors as may be deemed appropriate, in order to make a personal survey of t h e situation including tlie legal, personnel, financial, and n~aterialrequirements of the Electoral Mission. H e assures Iliinself that all necessary preparations are made, by personal contact with the appropriate a~xtlrorities. T11e preparation and adoption of a n electoral law to meet the requirements may be involved. It 3vill probably b e necessary to secure agreements establishing the legal status of tlie United States electoral personnel and the obligations of the foreign government concerned in relation thereto, pnrticnli~rlythose obli,nntions liaving to do with salaries, allowances, expcilss, shelter, supphes, and the right of "free entry."

SWM 14-16
ELECTORAL BIISSIOX

c. Tlie Chairman issues instructions to United States ~iaval, military, and civil :iotl~oritiesin the country concerned, directing their full cooperation in t h e a~ccessfulaccomplishment of his mission. Such instri~ctions reassigm may involve questions having to d o ~~it.11 ment of persannel, shelter, mtioning, tmnspnrtation, protection, clisciplinary procedure, and replacements. Plans a r e prepared f u r instituting necessary military and police protection to maintain order during tile registration and electoral period. If a~,ailable,t h e native constabulary or similar organization is generally cliarged mith tbe principal effort wit11 relation t o military a ~ police ~ d problems arising di~ring t l ~ e lectoral period. This force may fail to cooperate fully ~ v i t the l ~ Electoral Blission and may even attempt to defeat t h e purpose of tire Elrc(ora1 illission, of left under tlre c01111nxnc1 or conconcerned. For its p r o ~ x r cr~ntrol,it t,rol of an officer of llie cou~itry is obvious that suclr military force. should be placed under the autl~ority,if 11ot the actrial control, of the Ch:~irman of tlie Electoral Mission during the elect(~ml period. The Chairman of the 13lectorill Mission need 1raw no administrative authority 01-er the United States forces i n tbe country. H e does, Irowever, expect full support from sucli forces. Tlie military protection required for t h e Electoral Mission will include guards at polling places and in the torrns where polling places are situated. It may be necessary to increase t h e number of combat patrols during tlie period, particularly in sensitive areas. Escorts may bc required to convoy groups o f citizens to a n d from places of registration and voting. A general redistribution of military forces may be required to support. t l ~ eElectoral Mission during the critical period. d. Upon his arrival i n tbe country concerneil, the Chainnan of t h e E1ector:~lMission should 11:1ve absolute local United States authority on all qi~estions pertitining to the election. H e cornmunicnte~mith t l ~ rState . I)rpartment, direct, concerning all electoral matters. The State Depnrtment rep~ese~~tntive regularly assigned to represent t h e Government of tlie United States i n the foreign country concerned for~vitrds reports or other correspondence concerning or affecting t h e election through t l ~ e Chairman of t h e Electoral Mission. The absence of a definite delineation of authority may 1e:td to confusion a n d disagreement. e. Direct contact with the Chief Executive of the country places t h e Chairman of tlie Electornl blission i n a position to exert a favorable influence, most important in its effect, toward tlie successful accomplishment of his mission. The political party in power may attempt

SWM 14-15
ELECTORAL &fISSIOX

to adopt unethical meastires tlmt nra tolerated by locnl civil law a n d acceptecl by customary usage. Such unetl~icalmeasures may affect the conduct of a free, fnir, iind iin~)artial election. Control over such matters generally rests vith the Chief Executive of the country. Insofnr a s p~acticnble,such iinethical practices slrould be controlled by restrictive measlures i n tlie election laws tlreinselves. An understa.ndi11gconcerning these practices slrould be reached by the Government of t h e United States :rind the Chief Executive of the country concerned prior to tlto nssulnptio~~ of responsibility by the Government of tlie United States for the proper conduct of the elections. I n tlre event problems arise t l ~ a are t beyond his control, the Clrairman uf the Electoral 3Iission comlnunicntes the circumstances to tll* State Department.. W l ~ e i ~ ci)~~nsel or instructioi~sof tlre latter have. tlie k~eenreceivecl, he visits the Chief Executive of tlre foreign c o u n t ~ y and, n~itlihis cooperation, makes definite arrangements to remedy n situntion wliich m:[y lwcorne into1cr:ible if permitted to continue. Tlre Clrairmarr inrtkes a n estimate of t h e funds that will be required to cover the expenses of the Electoral Mission, submits such estimate to the proper authority of tlre country concenred, and arranges f o r its appro11ri:~tion. He arranges for t h e United States funds rtecessaiy for salaries, allowances, and travel expenses to and from t h e country concerned. f . The Chairman sollects his staff and organizes the Electoral Mission. Through his Vice Chairman, h e arranges t o have the staff undertake studies and the preparation of detailed plans. g. Prior to the departure of t11e other members of the Electoral Mission from the United States, the Cl~airman assists i n drawing u p a definite agreement between the two governments on the. following matters: (1) The portion of t h e expenses of the Electoral Mission to be borne by t h e foreigu governmei~t concerned, including the appropriation and the deposit of such funds t o the credit of the Electoral Mission. (2) T h e strength of t h e constabulary or other military organization of t h e country concerned, and the police force estimated to be necessary t o insure peace and order in the country during the electoral period, and during the 30 days immediately p r d i n g that period. H e receives definite nssurnnces that the m i l i t a v and police forces will be maintained a t the estimated required strength. (3) T h e laas and decrees of the government concerned that are considered necessary in order t l ~ a the t Electoral Mission may accom-

SWM 14-17
ELECTORAL XISSlOS

be passed and promulplisli its task. Such l n l r and dccrees sl~oolil gated prior to the assumption of its functions by the Electoral Mission in order that the appearance of pressure on the part of the Electoral Mission may be avoided. h. The Chainnan of the Electoral Mission should be installed in a properly furnislied residence by tlie foreign government coiicen~ed. He arranges for the go~eriimeiit concer11ed to provide the Electoral Mission ~vitli sufficientoffice space where complete privacy is assured. i. After his appoii~tmentas President of the. National Board of Elections, tlie Cllairmalr of the Electoral Mission organizes that Board and trains the, personnel necessary for its proper functio~iing. He calls meetings of tlle National Boaril of Elections to iliscuss die SIICI~ decisions as ~1.e electoral lam and its l~roct.dure,~nldt.o ni:~I<e reqoired for the 1n.oper interpretation and execntion of illat 1:~m. I11 sorne instances, tlro c:liididstes for office, their followers, and wen tlre lmlitical putics tllemselres nlny require emphatic instruction to guide them ill tlieir cond~lct. I'olitical parties and tlieir 1e:iders are reqnired t o assume certziin ilefiniie responsibilities, and are charged with maintaining clisciplirie ~vitl~in tlieir respective organizations. 14-17. Vice chairman.-The Vice Chair~naii of tlie Electoral Mission is tlie assistant to the Cliainnan of the Electoral Mission. He is also Vico President of the National Board of Elections. I n gene n l , his duties are comparable to those performed by a chief of staff. As Vice Presiclent of tlie National Board of Elections, he attends all inoetings of that Board aricl is prepared to assume the office of the Pirsidont in the event of the latter's inability to senre. 1618. Executive officer.-a. The duties of the Esecurtive Officer include the ailministriition. trai~iinn and supervision of United 1' States electoral persolinel in their activities of n nonpolitical nature. IIe controls tlie expenclit~lrcof United States fr~tlcls, a11cl :nYa.nges for tlie procurement of necessary United States supplies. He is the liaisc~ii officer betm~een tthe Elcct,oral Mission and linited States forces. The activities of t l ~ e Executive Officer are confined to Electora.l Mission duty only, a s differentiated from duties pertaining to the National Board of Elections. This tends t o keep tlie administration of tlie Electoral Mission and the training of its persomiel wpart~ted from the electoral funct.ions of tho Elector:~lMission. b. T h e Executive Officer may be assisted in the administration c~f the personnel of tlie Electoral Mission by the assignment of one or more officers as con~mandingofficers of units of the electoral cletachine~~t. When the aclniinistraticm of their detachments does not

ELECTOItAL JIISSIOS

r e p i r e their frill t,ime, ancl \x.Iien there is a need for their services, the latter may be assigleci duty as assistants to the stttff officers of the Electoral Mission. 14-19. Secretary.-a. Tlie duties of t h e Secretary include the operation, direction, and supervision of t h e office personnel of the Electoral Mission. He records tho assignme~~ts of personnel, including tmnsfers and other itrrns of importance. H e is charged wit,h tho safeguarding and filing of all correspondence of the Electoral RIissio11. H e lreeps the rlaily hist,ory of tliei Mission. The Secretary arranges for tho reception of officials and other visitors. The infonnation :tnd rcccption desks operate un<le,rhis srcpervision. He sul)erviscs the work of the nonclerical civilian employees of the Electoral Mission. He is not assigned the dual function as Secretary of the National Board of Elections. A n additional officer is required for thut duty. b. The Cliief Clerk operates under t h e supervision of tho Secretary. IIis cluties include the ii~anagen~ent. of the clericttl force attacllec1 to tlie Executive Officer's office., and the proper handling of incoming a n d outgoing correspondence, files, and orders issued by the Executive Ollicer. I-Ie is charged with the duty of posting gixtrcls to snfegt~nrdthe office and correspo~~dence tl~e~%in. The Electoral Mission bulletin board is under his ilirect supervision. 1420. Inspector.-The Inspect,or of the. Electoral Mission should be thorouglily familiar with the electoral lam and all interpretations, decisions, ttnd inst.ructions of the National Board of Elections. H e sllould be qualified to conduct investigations and intervie~vsin the Innpage of tlie couiltry. Z s cluties inclutle the investigation of compluints of a serious nature. He keeps the President of the Nntionnl 13oarcl of Elections inforrnod of tlle operations of the electoval law and procedure by observation of their operatio11 thrm~gliouttlie country. H e visits the various ontlying depaitmmts, and studies conditions which ]nay 11:~ve a direct a n d import.ant' bearing 0x1 t h e electio~~s. 14-21. Intelligence and press relations officer.-a. The Intelligence: and Press Relstions Officer collects, evaluates, a n d distributes all intelligence infonnation of interest t o the E:lectoral Mision. He is in constant tone11 with t h e military, economic, sooixl, and political situations and developments insofar as t l ~ e y may affect the elections. A periodic intellige~lce report, covering t h e political, economic, and military situation, is made regularly. T h e period covered may be biweekly or montl~ly. H e prepares and submitS to t h e Chairman

SWM 14-22
ELECTORAL YISSIOX

of the Electoral 3lissio11, periodically or upon call, general estimates covering the military or political situation, and may be directed to prepare special stndies of particular localities or activities A personnel file of a.ll important characters in the conntry is kept up to date. This file has a complete history of each individual, incloding his military and political affiliations. The Intelligence and Press Relations Officer is the liaison officer of the Electoral %fission with intelligt.,ilce sections of Unitecl States military forces, native military rnld police forces, ancl nrith the local and foreign press. IIc prepares and i%leass infor~nationto tlie press. A clippinrr bureau is innin? tained and brief rt.s~unbs are prepared of all artlcles appeariug in the press coneenling the Electoral Mission or the National Board of Elections. The latter are prepared daily and st~bmitteclto the Chairman of t,lio Electoral Mission. If cleemed advisable, a. 14wrnE; of such info~nirrtioi~ may be n~iineograpl~ed and distributed to personnel of the Electoral Rlission. Prior to leaving t,l~e TJnited Stntes and after arrival in the country concerned, tl~eIntelligence and Press Relations Officer col1ec.t~ books, texts, and ax%icles of a nonfictional nature pertaining to the country or region concerned, and mnint:Lins such nlaterial for the use of the personuel of the Electoral &fission. Pllot,ographs are taken of various subject,^ having to do mith the activities of the Electoral Mission and are later included i n the final report made to tlie TJnited States State Department. 5. Assistants to the Intelligence and Press Relations Officer are assigned to relieve him of the detziils of compiling briefs of articles appearing in the press, and to assist in the preparation of press releases, These assistants also make special investigations ancl reports, and assist in the instruction of Electoral Mission personnel during t h e period immediately preceding the registration of voters. c. The office force will genelnlly require a ~ninimumof three proficient stenograpliers and typists, at least one of whom should be thoroughly conversant vuit.11 the language of the country concerned. It mill often be convenient to employ one or more native interpreters to assist the Intelligence Officer. They should be men of education, good^ bearing, and neutrality in politics. If it is iulpossible to find nonpartisan interpreters, they should be selected equally from among partisans of both political parties. 1M2. Law otEeer.-u. The Law Officer furnishes information to t h e President of the Xational Bonrd of Elections on legal matters relating to that Board. I n the discharge of such duties, he takes into consideration the current electoral law, the constitution of the

SWM 14-23

ELIGCTORAI, >IISSIOS

conntry concerned, rarious 1oc:~llal5.s :1n(1decrees, anil, a s a matter of precedent, the, rc~lingsand decisions of former Electoral Missions i ~ l l c l Xational 13oarcts of Elections When required, he renders opinions on complaints subnlitted to the National Uoard of Elections . prep:trc:s the initial draft of the electoral law, for ri i ~ ~ l i n gEIa during tlte period of survey by the Chairman of the Electoral Mission, provided snch n doculnr~rthas not already been furnished through the IJnitrd Statcs State Department. Upon the completion of its duties by the Electoral Mission, tlie IJav Officer prepares a report showing ally wca.lroe,sses i n tlie lean1 features of tht: electoral 11iw or proccdurc that llave been ~liscloseilin t,he election just completed. This report. is prepared in the form of proposals f o r la~vs, decrees, and instructions, and is delivered to offii:i:~lsof the country concc,rned as a suggestion for t h e improvement of the electoral lam and procedure.. 6. The Lam Officer may be assigned one o r more assistants, incli~ding United States civilian experts in electoral law. Such clerical assistance as may he necessary is provided. Two stenographers and typists may be considered the n~inirnuln requirement for this office. I f practicable, they should have lind prior experience in legal research and reports. 14-23. Communications officer.-a: The Comn~unicationsOfficer prepares plans and recommendittions for tho mnintenarice of efficient commi~nicationsfor the Electoral Mission arld National Board of Elections, by tho ntilization of esisting means of communication, and througl~ the supply of such additional channels as are necessary and practicnble. Methods of communiention will generally include telegraph, rutlio, tclepl~one,airplane panel and pick-up, and me.ssenger. Tho Comrnunicntions Officer is responsible for the coding, decoding, routing, and filing of disltatclies. He maintains a record of comrnunic~itionfacilities thronghout the country. 6 . All the usnal agencies of communication i n the country sho111d be available t,o t h e Electors1 Mission and the National Board of Elections. In addition, the commu~~icntion facilities of United States military and naval forces may be ltlaced n t the disposal of t h e Electoral Mission, provided this can be done without interference with the normal communications of the latter. Such forces will often have only extremely lilnited facilities for communications, a n d 'these will he heavily burdened with necessary traffic. In order t h a t these facilities rnay not be further burdened, the Electoral Mission should limit its reqnests for transmission of messages to cases of urgent.
28

SWM 14-24
li?~IIC'POll:ll.

2115S10 S

r~ecessil.g, o r after t l ~ o failure or 11rovcrl i~~:~(Ieq~rac)of otlrrr ~nrtins nt polling of corr1rnunicatii)it. Coinn~u~~icatioii ~ r i t htlet~~chnients places inny sorrreti~neste. cliffieult and slow. I t may be 1lecess:try to depend 'hiefly upon the airplane for connni~nication wit11 remote d t' 1011 places lacking ot,her coln~nuliicatioilfticilities, and for cornn~nnic. with places 1vit11 ~vhicll other meails of oominunicntion is unreliable. For short. messages, advantage can bo taken of planes tlvat patrol reniote registration antl voting places. 11-21. Disbursing and supply officer.-The Disbursing and Snpply Officer is responsible f o r the custody a n d expe,ilditure of all funils ,if t!le coul~tryconcen~ed,placed to t,lie credit of the Elrctoral Mission. He prepares estimates for funds reqt~iredby t h e Electoral Jlission, a n d presents tlrrrr~to the C l ~ a i r m n of ~ i the Elector111&iission for requisition on the foreign gorermnent. co~icerned. H e drafts all correslionderice pertwining to f~ulrls of t h e Electoral Mission placed to its credit. by tire foreign government. \! h ' en required, he st~bniits voucllers a n d requisitions reqniring espcnditures to the Executive Officer for approval. He submits rnontlilg itcmized reports of receipts ~ l l d expenditures, together xvith t h e necessary voucl~ers,to the Minister of Finance of t h e goverinr~entco~lcorned,via t h e Chairman of the Electoral Mission. The Disbursing and Supply Oflicer visits the Minister of Fina~lce a n d secures his :&pprovalof the wording and arrangement of vouchers i n order that tlre latter may conform to the current governmentnl pmctice. Electorztl Mission fnnds are kept on deposit in a n q p r o v e d bank in the natrre of the Electoral Mission. Tlio Disbursing anit Supply Officer keeps the boolrs, records, vouclrers, :n~d reports pertaining to such funds, according to approved methods. Tlle transportation of personnel and freight by rail, airplane, motor, etc., and t h e coordination of the. e~rlploymelitof sui:l~ agencies is a f:ullet.ion of tile Disbursing and Supply Officer. Prior t o the departure of the Electoral Mission from the Unitcd States, the Disbursing and S l ~ p p l y C)fficer prepares a budget estirrinte of the electioils in considerable cletail. T o this estimate should bo tldded the item, "Unestimated, U~derestimated,a n d Unforeseeil Itenis." Insofnr as can be foreseen, t h e budget estimate shoulil contain all contingenl items, such as per diem allowances and rentals. Some iteins 1141ic11 are included in the budget estim~~te, nuiy be founcl to be unnecessary later, but:are included as n precautionary measure to insure 2111 adequacy of funds. It is far easier to reach :tn :~peemcntupon tr ilefirrite sum initially, even tllondl this S I I ~ Iis some\vhut Icrrge, than i t is to procure supplemel~tary funds from tinre to tirne in order t.o make u p for

24

SWM 14-25

a budget. estirnate thtit was originally i~iadeqnnte. il favorable impression is created when nnespended credits ar? turned 1i:lck to the credit of tlle country concerned by the Elt?tt.oral Mission. The funds appropriated by the country concerned should be placecl t o the credit of tlie Electoral hlission for its 11% i~n~itediately upon arl.iva1 at the. beginning of the electoral period, ill order to provide fnnds for expenses, supplies, and rents, that vill be needed i~nmediately. Before his departure from the United States. the Disbursing and Supply Officer slrould be furnished a statement by the State Ilepartment indicating t h e exact United States funds and funds of the country concerned t1i:tt xrrill he av:iilnble for the conduct of the elections. 1425. Medical officer.-'I'he Aledical Oficor is chnrgecl with caring for the health of the personnel of the Electori~l Mission. H e instrlicts such personnel in ltygie~~e, sanitation, ancl related snljects that are peculiar to t h e country co~icenied. When the bulk of t h e personnel of the Electoral ;\Iission is clistribnted in outlying regions, the Medical Officer makes illspection trips to the various departments t o inyestigate living conditions, health, hygiene, and sanitation. 1P2(i. Aides.-hides are assig~redto tlie Chairnlal~of the Electoral bIission to perform suclt duties of nn offi(:ial, or personal nature as the Chairrnan may direct. It. may be found practicable to assign one aide additional duty as morale officer. As suclt, he is responsible for the recreational activities and equipment of the Electoral Mission personnel. 1-1-27. Departmental board personnel.-*. The Cliairnien of Department:tl Botlrds are. commissioned officers of tlle United States forces. They are directly responsible to tlie President of tlie National Board of Elections for t h e proper conduct and operatio11 of the e1t:ctoral procedure within their respective departments. The necessary facilities to carry out these duties a r e placed at their disposal. They are inducted into office by the National Board of Elections, and proceed to their respective clepart~nents about 6 or 8 weeks prior to the first day designated for registration. Additional commissioned officers are designated as Vice Chairmen of Departmental Boards and serve as assisti~nts to the Departmental Chairmen. Upon arrival a t the capital of his dep:~rtment,the Chairman nlrrkes contnct with the local civilian officials, and organizes the Departmental Board of Elections. He surveys the depnrt~nental politict~l orgnnization and studies any cl~angrsi.ecisnrnentled by the political members of his board. Arn~edwith this info~mation, lte. nrakes a personal reconnaissance of his departme~lt to establish contacts in the various cantons district.^)

S W M 14-28
ELIICTOll.\I, >IISSIOS

ancl to determine if any rearrailgciumit of proposed polling planm is advisable. IIe srrrreys the 11olilical c11d ~riilifnry sitllation tlirougliout, and ratiotiilrg fi~cilities availhis del~artlnent,wscertaius tlie llousi~tg able to tlie Electoral &lissiou personnel, and cletern~incstlic number of guards necessary for t l ~ r i r protection a ~ i dfor tlie in:iint,enance of order at tlle polling p1:lces. Tlie Chninnt~tl then returns to tht! a detailed report capital of the country concerned, where lie ~ilz~kes to the President of tlie N a t i o n ~ lBoard of Elt?ctions. Inclucleci in this report. are recommer~diitionsmade as t~ result of a sirrvey of the department. b. Tlle Departsr~entalBoard of Elections is organized in a manner similar to the National Board of Elections. Tlre Board coiisists of t h e Chairman, who is a commissioned officer of the United States fo'rces, anci t ~ v o political n~e~nl)crs, otir representi~rg eitdr of the two political parties. The political inembcrs are nppcrinterl by t11.e National Board of Elections after non~i~iation 11y the representatives of their respectire politicnt parties, \vhn am mcrnbers of tlle National Board of Elections. Provision is made for the appointn~e~rt of substitutes to act ill case of incapacity of regilar polit,ical members. c . The Chairman in each department is authorized to appoint a secretary for the Departmental Board of Eleckions. It may be advisable to restrict sucli appointments to commissioned officers of the United States forces. The Secretary may be a. United States civilian or a civilian of t h e country concernetl. He takes no part in the deliberations or decisions of the Board. d. The Departmental 13oarcl of Elections has general sripervision of the election in its own department, and deals directly with Cantonal (District) Boarcls of Election. The Departmental Clrairman is frequei~tly catlc<llupoir to iworrcile the opposing views of tlre political members of the Board. Every attempt is miide to dispose of complaints, appeals, and petitions by action of thr: Departmental Board, permitting only t h e more importa~lt complaints, appeals, and petitions to g o to the National Board of Elections for decision. 14-28. Cantonal board personnel.-a. The Cantonal (District) Boards of Election are similar i n cosnpositic~n, to the Ilepartmental Boards of Election. Each Cantonal (District) Boarcl nf Elections has a Chairnman, who is nsrially a n enlisted man of tlre United States naval or military forces, and two political nlemk~rs,one froni each of the two political parties. T h e political n~embersof a Chr~tonal (District) Bortrd of Elections rire appointed by tllc Departmental Board of Elections in a manner sinlilar to the appoiotnient of the

SWM 14-28
ELECTOIIAL 31ISSION

$~oliticnl members of the latter by the National Board of Elections. Provision is made for t h e appointment of substitutes to act in case of incapacit,y of regular political members. I n some cases, the Clrairxwan, :IS mell as the ot,l:er t\i-o members of the Board, is a citizen bo e.xercised t h a t the number of the connt,ry concerned. Care sl~ould of Chairmen assigircd from ntnong citizens of the country concerned are drawn equally from botl~political parties, in order to %void charges of partis:~nsltip. 6. I Ca~rlonal (District) Board of Elcct,io~aexercises diract snpervision over (he registr;ltion :urd voting of t l ~ o individual voter. The C::ntonal (1)istl.ict) Uo;~rclis responsible for t h e enforcement rrf pn)\.isiotrs of tlre e,lcct.or:rl regtdatirn~s to insttae II "free and fair" election. Tlris responsibility rests prinr:~rily upo~rthe Clr:tirman, a s the representat~iveof tlic, United States C+ovcrrrment., is in direct contact wit11 the voters tllmnselves. H e is placed in a position of responsibility and iu~tl~ority, an(1 his reliltions with the political members of the Board and the military guards mill require a maxirnum of tact and good judgnient. The Cantonal (District) Chairman and his guards sllould arrive at t h e location of their polling places a t least one meek prior to t1:e first day designated for regist.ration, in order that they may be estnblislied and ready for t,he transaction of official business on the opening day. In each case, cirwill determine \vhether or not the Cantonal (District) c~~mstalrces Chairman and his guards will be withdrawn t o the nearest garrison during the period between tire close of t h e registrationand the time it will be necssary to return to tire polling places f o r the election. This decision will be influeneed by the challenges, complaints, and other official business to be transacted, and by the travel time rehuired to make the trip. The final decision is made by the Depart.ment,al Chairman or higher authority after consultation with the military connnander concerned. c. Many of the cantons (districts) may bo situated i n remote and outlying places where United States members may be f o r c d to undergo some Bnrdships. I t may be necessary for them to live i n uncomfortable and unhealthful surroundings without immediate medical aid. Airplane drop and pick-up may be the only method of communicatio~~ in some cases. d. When the Electoral Mission personnel available is limited in number, i t may not be feasible to assign a Chairman to each Cantonal (District) Board. I n such cases, i t may be necessary to use supervisors. A supervisor is a n enlisted ~nenrber of the Electoral Mission who acts as Chairmall of tw or mure Cantonal (District) Boards of Election. 27

SWM 1 4 2 9

NATIONAL BOARD OF ELECTIONS

l',,".

Page

Membcrn and staff.......................................... nutics ................................................. Soeretar) ........................................ ajcd pi.titions ........................... Compirtiats, z~plicals, Afisembly .......................

14-29 14-30 14-31 14-32 14-33

29
30
30
30

32

1429. Members and staff.-a. Tlle lrreniberslrip of the National Board of Electioirs includes tile following: 1. President.-'I'he C?llainrlen of tlte Electoral Mission. H e is designated a s Presidei~tof the N>tt,ionnlBoard of Elections by tlre executive of the foreign country concenre~l. He is legall]' inducted into office i n accordance mitt1 the laws of that country, as are also the two political members. 2. Member.-'rlris rnerxlber is designated by one of the major political parties and represents that political party on the National Board of Elections. 3. Member.-This nlembcr is designated by the other major yolitical party and rcprw,rlts that party on the Natiox~nlBward of Elections. 71. Tlw Staff of the National Board of Elections consists of a secretary, :~ssistant secretary, translators, and clerks. T h e number of translators a i d clerks is governed by the need for their services, and will vary wit11 the size of the country, the number of votc:rs, and the electoral l i ~ w s of the coutrtry. c. I11 order that the work of the Natiolral Board of Elections may rolltinue witl!oot interruption, substitutes for all n~einbers arc provided to take the place of any members who are temporarily unrible to serve during meetillgs. The substitiltes are designated by the mnjor political parties of tlre eount,ry coneenred, and a r e iegi~llyindoctecl into office in accordance witb the la~vs of the co~irrtryin the same manner as proviclcd for regular members. The Vice Chairman of the Elodor.al Mission is designated as Vice I'residellt of tbe National Board of Elections. Although only one secretary and one assistant secretary are normnlly required to carry 011 the vork of tho

NATIOSdI, I:O;LI(L)

O F 1:L.XC'rIOSS

National Board of Elections, it is a ~ n v e ~ ~ i e to n thave substitutes :trail:~ble\vl~o have hoen iegi~lly designated and inducted into office. 1430. Duties-The Satio~tal llonril of 1~:Iectionsesercises general snpervisio~rof t l ~ e electio~iand is tlte fi~inlttutl~orityon all itratters pertaining to the election. It issr~esinterprrtatiorts ~ilrrii~rstrlrctions for tlre proper esecutior~of tlre electoral laws. 'Vhe Nationill Board of Elections hears all complaints tlrnt reqnirC its ilrcision. When such actioo is indic:tteil, cotnplaints slmnld be i~rvestigatedinitially by tlre political jnrty co~rcerriedand theti presented to tlte National Board i ~ fE lectiot~sby the respo~tsihlelreltl of tlral political party. I'etitio~~s citizelrs nrost :t~lc:lappeals presented for aclio~t t)y resl~a~~siblc aud i n a manner be made ill ~tccortlance with the law of tlrc cot~l~trg, that will upholcl the digr1it.y of the N:lt.i01utl 13o:~rdof Elret,ions. 14-31. Secretary of the National Board of Elections.-This office is generally filled by a conin~insionetl oflice,r of the Uniterl States naval or rnilitary forces. He is clinrgetl with keeping the record of the mirrute,s of all meetings of t h e National Board of Elections. He prepares all correspondence emauitting from tlie National Board of Elections, and maintains a record of all incoming and outgoing correspondence of tlrnt Board. Sinca the Nittio~~al Bonrd of Elections does not. have a cornmti~~ication system of its own, the cominunication is employed to handle the system available to tire Electoral Missio~~ commin~icat.ions of the Bonrd. T l ~ e S ecretariat of tlre Nat,ional Board of Elections sllould be entirely apart from the offices of t h e Electoral Mission, hut should be convenierrtly 1oc:rted wit21 relation t o the latter in order that the necessary contact among the various staff ~nembers may be readily maintained. The Secretary has an assistant secretary, and one or more stenogruplrers for clerical assistance. When the offices of tlte Electoral Mission and the National Board of Elections are separated by several city blocks, i t is c1esir:rble that tlre Secretary of the National Board of Elections 11a\.e his office at the headquarters of the Electorat Mission. The Assistant. Secretary of t h e National Board of Elections is in cllarge of tlre offic,e of tlie National Board of Elections. Mattew requiring the signsture of the Secretary of the National Board of Elections are sent to t h e latter's office a t the headquarters of t h e Electoral Mission. It should be clearly understood that the Secreta~y of the Electoral Mission does not perform a dual function as Secretary of the National Board of Elections. These are completely separate functions. 14-32. Complaints, appeals, and petitions.-a. All complaints, appeals, and petitions should be prese~rtedtltrough the regular official
30

SWM 14-32

cl~annels. Subordinate agencins should make every effort to settle such mat,ters without tho rlecessity of forw:~rdingthem to the next higher agency for action. T o furtl~er their own interests, colnplainants mill often attempt t o take their complaints to tho highest autliority that mill listen to them. Tllns, if a co~nplainantsncceeds in presenting a complair~t before the President of the Kat,ionnl Board of Elections, and the latter refers the compluint to a Chairman of n Departmental Board of Elections for an i~lvestigation, t h e complainant mill have a tendency, t,hereafter, to ignore the Clmirmen of tlio Departmental Boards of Elections. Mucl~corraspondence and t i n ~ e will be saved if the higher :tuttiorit,y refuses to uccept complaints, appeals, and petitions mhen i t is obvious t,hat a subordinate agency can handle the matter. b. When complaints, appeals, tlnrl petitions are received thro11~11 the mail, direct, by the President of the Nationnl Board of Electiol~s, that they they slloold h e retnrneil to t h e originator with instr~~ctions be taken up with the proper subordirlatr a~~tliority in o~,cler tlrut they :nay be received through regular official clmmrnels. This mill 8 1 1 erally mean t h a t the originator mill be instrncted to s u b l ~ ~ Iris i t complaint, appeal, or petition to a i)epi~rtmentalBoard of Ele,ctions. I n orcler that a record may be mnde of a l l such matters, c~ralcomplaints, appeals, and decisions sliould not he accepted. The originator should b e instructed that all sticli ~nat,ters rniist b e submitted in the f e r n of a written, document before ~ c t i o n can be taken. c. Members of the staff of tlle headquarters of the Electoral Mission, who are personally acquainted with the leading politicians, must be particularly carefal to prevent such acqtiainttancesl~ipfrom being imposed upon by the politicians. It is to be expected that the letter will attempt to register conlplaints with the members of the staff of the headquarters of tho Electoral Mission with t h e expressed desire that such staff member make EL persorial investigation. If such complaints are received, they normally will have t o be referred to a Cha~irmanof a Departmental Board of Elections tu investigate, and such request should go through the I'resident of the National Board the Secretariat of that of Elections. This will tend to o~~erbtirilen Boaril, and violates the principles laid down in paragraph 1652, above. When staff members of the Electoral illission receive such requests, they sliould tactfully, hut firmly, refuse to accept the complaint and should suggest t h a t the complaint be taken directly to the Chairman of t h e Departmental Board of Electio~is concerned. The same principle applies to the acceptance of complaints, appeals, and

SWM 14-33
F.iTION \TI

BOAIII) 0 % ' E>I,IGCTIOSS

petitions by the Clrilirlnalr of :I Do]):~r'rnc.~rt:~l Uonrcl of Elections, by wlren it is obviorrs that tlre matter is not to be llarldled origi~lnlly it Cliaisrnan o f a Csnton:tl (District) Iloard of IClections. i i strict ~o~npliiitlce ill this wit11 tllc illstru~ctiolrsc o ~ ~ t . : t i ~ ~e ~ l ~):tr~g~.:rplr will :urising in comlectioi~ ~ ~ i t tlie lt sinrplify nuany of tlln problc~~ls electoral lams :und electoral procedure. 14-33. Assembly.-'l'l~e Katio~rtil Board of Elections should be furnisl~eda place for l~olilingits sessions. 'Iltc location sllould be such as to furnish colnpleto privacy. The space furnislred sl~ouldbe in Iceeping wit11 the dignity of the h i g l ~ office of tlre Niltional 13oard of Eler:tions, ilnd sl~ol~ld be free fror11 the curinsity of t h e general ~)t~Llic.Tllo r~rai~r room f o r tlrc holditrg o f sessions slroulil be sofof specli~tors. Proficiently lavge to trcconrino(1ate a lilnited ntilnbi~r of coinplete privacy visiot~sl~orlltl1% incluclrd for llie miui~~ten:~nce (lru.ing stxret st~ssionx. :It, ol.tler tlr:it tl~t?Secret:uri:tt of the I<o:r~,il I I I : I ~(tc(.111iy ciffic~v C O I I P ~ I I ~ R Ito I ~ tile Honrcl \rl~ilt..in session, i t \\.ill often bc,. ~lrost,c o ~ ~ v c ~ ~ i te o nnse t. : L pri\.:ltc ~.(?si,lence o f tlrc h ? l t e ~ . cl:lss e s llearlqu:u~ters of t l ~ c N:ttiou:tl 1:oaril nf Elections. In some cn~fis,t l ~ aNat.io~r;tlBoirril of Elections may be Inore conrenieiltly located in a conrmercittl building such :IS tin officc buil(li11g. I 1 1 tllc latter cast,, tile lnai~rtei~ance of privacy .ivill be rnore difficult.. The Ireadquarters of tlre National Board of Elect,ions slioluld be. witlli~l one or two blocks of the lieadqua~ters of t h e Electoral Mission, when such is primtimble. The two offices sllould never be in the same block or under the s:unre roof, in order to prevent interference m i t l ~ the proper perform:ui~ce of duty by both' groups due to the close intcrli~ingling likely to ensue.

SWM 14-34

REGISTRATION AND VOTING

Par.

Page

Registration.......................
Voting .................................................... Fi11:bl rej1nrt,a.. ........................

14-34 14-35 14-36

33 33 35

II:I~(?S

'I'l~e X:tt,io~~:~l 13oaril of Elections rlesigthe (lay or (litys on wltidr vot<>rsmrty register. The roles vovc?~,ing tl~c:process of rrpistri~tio~r : i n : issrretl by tht~prnper t~ntlror,> i t y. I hrco sr~ccc.ssirc. Sr~ntI:rys : i ~ ~t,\vo d intf.rre~ting Wednr~s(l:~~s will gi~rli*v:~lly Iri- f n ~ n ~ si~ l ~ f f i c iEov ~ t ~t.i~gist~?itiot~ l ilttys. 711e ili?sig11:11ii>n of five rrgistr;~ti~)ir il:~jswill enconrage the greatest possible I I I I I ~ ~ OF V ~ votrrs to register inld \\.ill pe1.111i1 t11rr11 to (10 SO \\,it11 the l11:ist inconvt?niet~ce to themsel\.es. h. Csntorrrtl (District) Ilonrils of Electii~n are org:inize(l snnlr time prior to the first date set for registration. T h e registration of voters is corirl~~ctrd by t:hese (I::ntor~al (District) Bor~rds. I n order that the Crtt~tonal (District) Boards of Elections rnny hear or difipose of :my challenges in:~de during registration of ~wters, a day is set aside for this purpose. It will genevally be found con: i date rlbout a week after the last registrittion \,cnient to desig~lnte chute for the ltearing and disposition of challanges. c. Tilt? a.ver:gw voter will judge, the efficiency :~rr(l fairness of the election supervision by t h e procedrire a n d metl~odseniployed during the registri~tionperiod. The intpl.ossions received by tho amrage citizen :tt this time will determine, in a large meas~ire,the nmonrit and kind of criticism that the Electoral Mission will receive. The creiition of a favorable impression of fairness :n~dimpartiality will assist tho E2lrctoraI Mission in carrying out its niission of lioldi~ig a ''fret? and fair" elect,ion, by t?nconr:~gi~~g n 1r1'ger proportion of the electorate t o vote. 11-85. Voting.--a. A sttidy of tho regist,mtion report,s by Depart,rnental Boards of Elect.ions will indicate wh~thernny changes are necess:lry i n the designation of C~antons (IXstricts). I t may b e found clesirable to colrtbine sorrw voting booths, and others may be moved or closed errtirely. In some instances, additional voting hooths may be needed in sections heving poor roads o r trails, and i n

1-l-$4. Registration.-rc.

SWM 14-35
REGISTRATIOS i\XD VOTISG

sections where there has been a large incre:~scin populatio~~ since the last elections. b. The ballots are prepared and supplied i n a, form in keeping t h e nature of t h e electiou tmd t.l~e irrtcllect~ui~l attainments of tl~e iuhabitants. 111 some countries, t h e political pnrt,ies hnve a distir~gt~ishi n g color. For example, the color of one political party may be green, and the other 11~1. By the e~nployinent of a green or red circle on the ballot, n voter who c;milot. rend, and is :LIXJ n ot color blind, is rnt~bled to pl:~cean (X) i11 t,he COIOIP~ circle lepresei~tingt h e p:irty o f his political belief. I n some countries, the political parties are identified by certabn symbols. For esample, in one country, on6 political party may hnwre for its symbol i~ rooster and the other may use n bull. The exact form of ballot to be employed should be determined by a. study of the customs ~ n methods d fol1owt.d in the counhy rm~cerned, after consultt~tio~~ with the best loci~l counsel nv~~ilable. r. In order to p r e ~ ~ e multiple nt voting, it is generally convenie~~t. to re~luirr, each voter to dip one finger in a fluid stain of :I secret. for~nult~ imnlediately after depositing his ballot. The flnid should be of R type that cannot be removed b y ordiimry processes available to the inh;lbiti~nts, and should wear off after the elapse of several' days. T h e color should be such that i t vill show clearly in contrast wit11 t h e color of the individual. T h e fonnula of the fluid is kept secret,' to prevent the distribution of lleutralizing formulas by persons bent. o n illegal prnctices. Since some opposition to the use of marking fluid may be encountered, i t is well to hare the Ci~iefExecutive of t h e country, lwclitlg ct~ndidntes,and other prominent cit,izens photographed while dipping their fingers into the fluid. Wide publicit,y i s given the ilemmmtr:~tions,together with the favorable comments from such prominent citizens concerning the requirement. d. If the registration bas been carefr~lly conducted, and disposition h a s been made of all cl~allenges prior to the day of election, t h e voting will be expeditecl, aird the work of the Cantonal (District) Boards, subsequent to the day of election, \ d l also be lessened. Wllerl all the business pertaining t o electoral proce6ure has h e n completed by the Cantonnl (District,) Boards of Election, the members of the Cantonal (District) Boards of Election proceed to t,hedepartmental capital with t h e ballots and records. Each Departmental Board of Elections hears a l l challe~~ges and complt~ints of each Cantonal (District) Board in its depsrtment. When the Dqepartmental Board has heard and settled a l l challenges nnd complaints, t h e members of the Calltonal (District.) Boards of Elections are released from further elector%l duty. The

SWM 1 4 3 6

Chairmen o f tlre 1)epartmentnl Boards of Election tlre~ireport in person \vitl, their complete electoral rel~orts to the Xi~tionnl Board of Elections. Seriorls reports n~ld'hallenges from any d e l , a ~ l l ~ l eare. ~lt Irparcl Ly t h e Nntional Board of Elections in tire presence of the Cllainni~no f tile Del)artmenl;~l Board o f Elections concerned. The ruling of t h o N;ttiimnl Board of Elections is final in e,ac.h case. 14-BG. F i n a l reports.-n. Tlrt: Satiorri~liloard of 13lections submits a cornl>lnte report of the 'lectiolls t o the Chief Executive of the foreign a,mrtl.y after receiving t11e reports of all tile Dep:~rt~nmtal 13oi~rds of Election. After the Chief Executive has received this report, t l ~ c E>l<:(.tol.i~l Missiorr is relei~setlof its electori~l (lr~ty hy proper TJliiteil States authority. 6. U11on completion of their dt~ties, tlre personnel of tllr Electoral Missio~rmay be required t o submit reports of tlieir pnrticular activities. Canton:rl (District) Cllairrne~~ may be reqoired t o describe their o t n t o ~ ~(tlistricts), s tile livi~rg conditions encountered, niid other n~nttersof interest. I)ep:~~,tm~ntal Chairmen m>Ly ho rrquirecl to describe thc ol)eaation of t h e electofill law as they obbser\,ed its opevxtion in their depart~nt~l~ts, together with any retomme~nlationsthey of fulllre elections. may wish t o make for the co~lcltrct c. T l ~ e ("hainnan of tlre Electoral AIissio~~ submits ?I. detailed and coniprehensi.r~o report to t h e State Department covering the history of the Electoral Mission. The, report i~lcludes crit,icisms arid recommendations of a constructive nntnre, and a l l information likely t o be of assistance t o future electoral missions.

SMALL WARS MANUAL

UNITED STATES MARINE CORPS

1940

CHAPTER XV

WITHDRAWAL

LXITED STATES
GOVERNMENT PRINTING OFFICE
WASHIXGTOX : Ism

SMALL WARS MANUAL

U N I T E D STATES MARME CORE'S

~ ~ I 1.r< ~ . ~ I ~ I

. Y Y

WITIIDRAWAI.

TABLE OF CONTENTS
Tlre Small Wars Manual, U. 8. Marinc Corps, 1940, is pnhlis!ied in 15 chanter3 as follo%~-s: C ~ A P T L I. I I INTRODUCTION. 11. ORGANIZATIOS. 111. LOGISTICS. IV. TRAINING. V. INITIAI, OPERATIONS. VI. IXFANTRY PATROLS. VII. MOUNTED DETACHMENTS. VIII. CONVOYS A S D CONVOY ESCORTS. IX. AVIATION. X. RIVER OPERATIONS. XI. DISARMAMENT OF POPULATIOX. XII. ARMED NATIVE ORGANIZATIONS XIII. MILITARY GOVERNMENT. XIV. SUPERVISlON OF ELECTIONS XV. \VITHDRARAL.
111

SWM 15-1

SECTION I
INTRODUCTION
G~,neral----------........... I'ti~tors t o Inn cnnsidered I'llnsex of ~~ithdr:t\vnl
. . . . -. .
~

. .

irtl
17-2

I'RT.

I'BEC

I 1 1

l,+l.General.-In arconl:i~~cr wit11 nationnl policy, it is to lm eslwcted that s~nall r\.ai~ oprr:~tio~ ~vill ~ s not be conducted with a. view to the l~ernltinent acquisition of :my foreign territory. A force e n g a ~ e d in srriall wars ol~eri~tions niay expect to l~ wit.lidrawn from fore~gn tcmitclr- as soon :is its mission is accomplished. 111 some instances. cl~illlpes ill national foreigrl policy nlay lewd to the a b n l l ~terlllinatio~r t of s~nallwars o1)euations n-itliin a given tlieator. Since e v e n t ~ ~ a l \ ~ - i t l ~ d r is a \certain, ~ ~ l i t is w governing faetol. in troop assignment anil field ol~erntio~is. 15--2. Factors to be considered.-Vi11u11t;~rr aud involnnt:~ry~ v i t , l ~ drn~valfrcnil contact. with a I~ostile, force is a tactical operation, thc~, I.~:~sic principles of ~vhich are applicable to any type of warfare. When $1 .i\.itllcllilTT:llfrom a foleign territory is ordered, tlrc 1nissio11 will ~;s~ially be to ~x.ithdra.n,,leaving the loc:~lgovernrrient secure in its snti.ifactorily. Policies, decisions, :ibility t o ~xecnte all of its f~ulctions plans, mrtl :rltcrntrtc plans sliould be decideil npou \%,ellin advance of the time of execution. Lical governmental functions shonld be retnrnrcl to t h control ~ of the locnl aotllorities :IS early in the campaign ns conditions lrarrant, in orcler that i t may uot be necessary to turn over all snch frunct.ions a t one time. As soon as an appioximate date for T\-itIl(lravrti1 llas been decided, the commander of tlie United States to Irigller autliority relntive to the forcits makes rr?con~mendwtions ~iietl~orls tr, accomplish the mitl~tiraxvaland requests decisions on all matters pel.t:~ining to t h e o])eration that l ~ is e not empowered to decide I~imsr!lf. 1)eeisions uw. reqcluested on all matters requiring coordinatior~ by a l~igller authority. 15-3. Phases of withdrawal.-For convenierice of antilysis, witliilranal is divided into two phases; t h e withdrawal from active military opcrntions and t h e final nithdralml. Tho witlrdrawal from active military operations commei~ceswhen elerrients of the United St;ites forces initiate tlie restoration to the local authorities of any governmentnl autllority or resporisibility that has been assumed during

SWM 15-3

t l ~ c orlrse of tllc cnrnpnign. This plrascr of tlrc operation terminates vhen the local gorern~ncntis ill co~nltletecol~trolo f tlre theater of oper:~t.ions. Tlris ltlrase lrray merge illto the final ~~,itlalrawtrl p11:~st~ may ba proceeiling a)ncorrently wit11 tlre since the filrrrl x~itlrdra\~-t-aI last stages of witl~dra\val fronr active nrilit:rry opetatio~ls. TT'llelr the Uoiterl States forces lrare transferred till go\~enlmerrtal uutl~orityarrd responsibility to tlre locr~l goverrrnrent and no further rnilitary operatiolls irre contemplateil except in errs8 of grave emergetlcy, the. fir~el \ ~ i t l ~ d r a mp11:rso al nray I)(. prolterly considere(1 to h a r e started. T h i s pllase ends w11e11all Ulrite~l SL:ltos forces Iiavc hcelr evaclcated from the foreign C ~ ) L I I I ~ I . ~ .

Secx1ox I1

WITHDRAWAL FROM ACTIVE MILITARY OPERATIONS

1%".
('on<mtr;rtior Itifltts retikit I'rt~cednre
~

I'i2gC

---. E d
~

3
3

.~
~

~~

1LT

....

1.54

154. Concentration.--Dur.i~rgtlrc i~ritinln r i l i t a r ~operatiolls of :I small E a r campaign, the eomnlander of t l ~ e Unitecl States forces is ~rsually free to dispose Iris forces in accordai~ce with tire tactical situation, subject to ge~ieraldirectives received fro111 higher aut11orit.y. TVhen the t:~clicalsitt~atio~i prrmits, troops m:ty be \!-ithdrawn fro111 orrtlying areas and collce~itratcilat poi~rtstllet -ir.ill pliable them t o support, irrrtive forces if socli s u i q ~ ~is r t required. Tl'1re11 order is i,rsti~red u~rd the prnficicl~cy of tilt?rialive tmoljs or police is such t h a t there is no frrrtlrer need for Zllritr<lStates forces in clnse support, t h e iirtter may Ire co~lcerrtra.tetl in n locality or 1oc;tlities wlwre tl~ey \rill be ar.i~il:~ble in c:isc of emrrge1,cg. This a~rrcel~tl.;rtio~i mag be grttdui~l illrd extend over a corisiderable 1)erioil of time. I t Irl:ijr be llastex~ed or reti~r(led by inten~~tictnal or loc;~l political co~rsiderntions. Co11ce.11tration areils are selected only after a careful eslimtrte of the situation. I n a rritl~rlra\~~al tlrrrb is ur~llamp~red by combat operutio~ls, logistic cor~siderntions will usnwlly be a cont.rolling fi~ctor in tile selecti011 of such areas. Tlie rrli~i~r or fiual co~icelitratioi~ area or areas will l~orlnnlly be s t :I sezrport. J'l'lrerr the final concentrntion area o r itreas lie illl:r~~d, tlrereto R lil~e of c o ~ r ~ n r r r r ~ i ~ nti~~I r I I ~ I She ~ st?cu~%d. 1&5. Rights retained.-As tlre U. S. forces will be r~linquislring all, or a t least IL part, of tlreir ~~liiitary, t~rritorial: and adrninistratio~l functions, considert~tioitrrllist be given to the inatter of rights : ~ a d po\vws tllat :rrt? to be rcti~ieed by the U~litedSt:~tes forces fijs reirso11s frlcilitirs of polioy or security. Tire rigllt to use all co~nmur~icntion is retained in order t.hat tl~o s u ~ l ~itnd l y ev:~c~rrrtio~i of United States r acoml forces m:iy be re:ldily carried out rlr~tiltlre final ~ ~ i t h d r : r ~is 1)leted. Mem~s of comlnmlic:ttion include the ullrestricted use of roads, ririlroads, ~!.nt.erw:~ys, as xvell ns telcplholle alicl radio f:rcilities. A definite vritlen ngreenle~~t. with t h e proper authorities is usually ~ n : ~ dto e cover the retention of r.ig11ts a11(1 privileges pertaiiiilrg to colnmunication fncilities. Military corrtrol is retained over areas i~ctrrallyused for rnilitary purposes, suclr us camp sites, airfic!lds, a n d s ~ ~ p p bases. ly Colrtrol is also retained over sr~fficientadjacent terrain to provicle for their defense. The ri@t t o operate military 1)lanes throughout the theater of operatiolrs 1 s illso retained. Corn2E99G1--40-2

SWM 15-6

\VITFIDR:i\vtAC lrROAr

ACTTVI' .\LIT,IThll\~ O F I ~ I ~ : L T I O S B

plete jnrisdictiou over :~ll members of tlte C n i t ~ t l States forces, even if serving in some cal~acit,y~ritlitllc locnl government, sllonid be retained. U ~ ~ d no e r C ~ ~ C I I I I I S ~ : I I I Cs1101:ld ~S 111e111b'rs of tlte Ullited States forces be suhjcet to tri:tl by the courts of tlle foreign co~urtr~.. q ~lntirp e olice The. tietention of ~nenil~ers of tlre Gnited Stt~tes forces l or military atitltority slioiilil be pernritted only in tho gri~vest. emergellcy, and tl~eli only for tlre protection of life and property until the offender c:u~be tnnred over to U~iitodStates military or naval antl~ority. I n all s ~ n a l l - ~ foportttionr;, i~r :I definite policy relative t o the joint functioning, tlie extent of duties, :~ndthe. 111utui~l relations iurionp local police forces, local militnrj~forces, and United States forces slroiild I J elll~nciaterl ~ as e:~rIyas pri~cticnbl~. Rlorlificntion of the details of tlrc! policies agreed nl~olitire tralrsmitt-etl t o 811 ~011cenmd from tillre to tinre a s t,lre x~~itltclr:i~~-~~l progresses. 1&6. Procedure.-Nonnailly. t l ~ f rirst step in the ~1-it11dralral from \rill I)? the concr>ntmtionof troops .. a t .some acti~e m iliting npenrtio~~s . suitablr?Iocatio~~ or locations i l l car11 niilihrg territorial snhiliris~on. Tlre final st,ep will l~robahlybe the vitlrclr;\v\.nl of troops fro111these territorial sr~bdivisions to ;I fi11a1 concentl.;ttion point or points. No :trea is; cxracnated until aclerluate 1oc:~lngencies llave assu~nedthe responsibility for the niaintcnancc of 1ax~-anltd order. Usnally, tlre initic~l \~itl~dr:i\\-;~l of troops is from the more tranquil or remote areas. Z f conilitio~ls pennit,, troops are assembled a t the most advantt~geooslocat,ions in the territorial snbdivisions and are then withilm~~ n battalions or regiments. I n nnticipntion of ~vithdra~val, by atrrl for otl~ercogent reasn~is~ it. is desirable to release tlre United States forces from all rout>ine consttlbnlary and police duties as early in t l ~ e c::~npnipn rls the situation permits. Sncli procedure does not preclr~cle participation I joint combat. oprmtions, since the United Stutes forct's continne to act as support for the native military forces. IJnforeseel~ dt.velopments in tlie military sitrration may necessitate, t~cti'i'econlb:~t opernt,ions by United Stt~tes forces ill order to maintuill t h e morale and prestige of t h e native. military forces tlrut find tlrcmselres hard-pressed. Tactic$~l lullits of t h e United States forces may be evacnntetl fmm tlie theater of operations prior to the date of final withtlr:rwal. In suc11 cases, clue reKard should be given to t h e ~recessityof retaining certain special nnits that mill be reqrtireil to f11nctio11until t l ~ e last troops are mithclrawn. Sue11 air, supply, and c i ) ~ n n l u ~ ~ i c ~troops. tion Adspecial units i~~clode ministmtive pla~isand tlte logistics pertaining to tlle cvacuatior~ sllould be formulated well in advance of the actual troop movement,.
4

SWM 15-7

FINAL WITHDRAWAL
Par.
Faqo

General.. ......................... Pluu~ and ordcrs..

.............................................

15-7 15 --8

( i
( i

.,
9
'j

Tliird section.

8 8
8

..........................

Surgeon ....................................................... Quartenx~aster ........................

1517 15-18 15--19

10
10
10

15-7. General.-After the \vit,lrdra~~al fro111 active nrilitary operations is completed, the lJnitc?d Stt~tes forms lrave tlie statns of reserves. Although their active emplognient is not anticipated, they are lreld in retidi~rossfor l~ctive military operations. Tlreir presence is 811 influential factor ill tlie support of :I legally constitt~tedlocal government. At. times, a lriilitary commissio~~, legation guard, or other component of t,he United States forces nray renlsin in tlie conntry lifter tlre fi~ial~vitl~dram:~l of the major portion of tht: troops. I n snch cases, they rernni~ras a result of iliplomatic esCOIIIIclmnges bctmee~ltlre (2oren1rnellt of the United Sttites zind t l ~ e t r y concerned. Tlie final ~vithdrnwalis not t,herehy affected. Tht. is sol-mitted to higl~t?r authority for plan for the final ~vitlrdra~~-al :ipproval \veil ill adrmlce of thc contnnplat:ed operiltion. Tlie film1 authority empolrered to approve: modify, o r disnpprore all or ptlrt, of the plan for filral \vith(lrnwal may he the senior officer present or. Llle Secrett~ryof the State., Wtrr, or Xavy Depnrtment. 111 sowe cases, tlre approval of tlre Chief I~xecutive of tlre U~riteclStates may be required. The ~recessityf o r tlie approval of uny or all of those t~nthorit,ies %rill deper~clupon the location of the theater of operations, the provinio~rsof the agr~anielitfor the withdrawal, or other factors, de,pendent upon tlie type of operat,ion. Many important cluestions requiring action by a Irigl~er tiuthority will usually present

SWM 15-8

FIXAL \WTHDRA\VhI,

the~nselves. Those that can he foreseen are ordinarily sublnitted for decision well in advitnce of tlie date of final \vithdr:t~'al. 15-8. Plans a n d orders.-Initial plans f o r \~ithdmwal a r e us11al1.v teirtnti~7e. Due to mrforrseen dcvelopments i n the military situation, t ~ a tmay . they are subject to c l ~ a t ~ gtw be i~nposedby directives and instructions fro111 higher anthority as they become necessary. As a consequpnce, initial orders f o r the \I-ithtlra~val are issned in frag~nentnry form in order to allow the rnaximt~~n preparation period. it forl~lal written operat,ion order with appropriate annexes, contirlning fraynentnry orders aud embodying all pertinent instructions for the \\-ithdralr-al, is issued nrell in :tdrance of tlte final troop moven~ent,. All nget~cicsand units of the 171iited States forces should given ample. time to providc for every detail pertaining to the ~~itlrdra!!~aI. The founulatiol~ of x co~ill>l.elrensire pl>\iifor the final witlldrn~vslis relative to t h e (late of depentielit lipon securil~gdefillite. i~lforl~iation \vitliclra\~-al, tltn ships available for transportation, the scliedi~lcsof silcli slrips. llrc i~:lredsuppork available, n:rval operations rtffecting the \vitlidra\x~al, the destination nmcl final organization of tlie United ill the \?itlrdrit\rnl, and the policies and deciStates forces i~rvoh~ecl siolis of Iriglter autltority relative to tlie political and military featnres of the situtition. Tlte necessary orders for the execution of the withdra\val itre issued when tlie lnilitarg requirements of tlre sitontion hare been deterlnined and all plans for the final stages of t h e withdra\~-a1have been perfected in coi>pemtion with tlie naval forces iiirolrecl in the evacuation. The i~dministrativedetails ~vill orditlarily require the issue of voluminous instn~dions. Only the essential general instructions pertaining t o administrative n~atters are il~corporatedin the body of the operation order. Other administrative instructions are isstled it1 the form of annexes to the operation ordcr. 5 9 . Executive staff duties.-hlt,l~ougl~ tlrc! duties arrcl responsibilities of tlre Executive Staff are esse~itiallythe same cluri~lgtlie \vitltdra\v:~1l~erioclns at any other time dlrring a smsll wars opemtion, the nle~.lnbers of the staff will usually f i ~ l d that their attention is fwused on certain definite pllases of their duties that assume relatively greater importance during this, period. The Chief of Staff' mag he designated as liitison officer for llie ptirpose of assuring close cooperation with the local agencies of the State Department and ot11e.r United States naval and military forces involved in t,he withdra\val. The Executive Staff concerns itself p r i ~ n a ~ i lwit11 y those decisions and policies announced by the co~nmander of tlie United States forces

SWM 15-10

from time to time dnriug the p~tparationperiod. These inclncle the folloning: tlle date troops are to be ~r-it,li(lra\~n from racl~ concentrilI n~ajor troop units ;tare t o Ix:tri~nsferretl tion area; tlie dates ~ I \vliicli to the continental Unitecl States; protective nreasures to be employetl ; asse~nblypositioi~s~ 11-he11de?ign:tted; routes of n~ove~llerrt to be usecl by each unit; composition and strength of t11e last unit to clear t h e colultry; property alld snpplie? to h retorned to (Ire continentill United States; the dispositio~iof property and supplies not to be retunled t o the United States; procedure to be followeil dnririg negotiations f o r final settlement of all claims against the IJnited States ns a result of n~iliti~ry operations; reserve wrpplies ancl anilnnnition t o be held available nntil t l ~ e [late of departow; date of evacnntion of ineffectives, noncombatants, dependents. l~onsehnldeffects, and excess baggage; and tlie ceremonies to be conducted upon the retlrrn of forts. h~rracks, or other property to the custody of the conntry concen~ed. 1S10. First section.-The first section is cllarged with the prepamtion of details relative to the evacuation of the menihrs of the United Stati!s forces and their f~imilies. i\dvi~nceinformation as to t e ~ ~ t a tive assiglirnents to ne,x stitations of all personnel is reqnired in order that dependents and personi~leffects may be properly routed. Since the evacuation of dependents will dso require the transportation of the personal effects ancl household goocls, this nlovement should be execnted well in arlvance of tho final troop n~ovemcnt. Arrangement is made for the discontinuz~nee of Unitecl States postal service ashore and the transfer of such activities to naval vessels within the theater of operations. Steps a r e taken to obviate tlie c o ~ ~ t i ~ ~ arrival u e d of United St:ites mail for members of the connnitand after the ~vitlrtlr2uvi1l has been effected by a nc~t,ification to all postmasters a t forwi~rdingports in the continental United Stltatt?s of the date on \rliich to disconti~~ue for\varding mail. Plans :Ire agreed upon relative to the relationship of military 1)olice wit11 tnelntiers of t h e United States forces, and with local military ant1 police forces. Preparations are of ~verfarci~ridpost exchange activities. mi~de for tlie discontin~i~nce The quantity of welfare it11d post exchange snpplies bronght into tlie vountry tluring the prepamtion for ~ithdralva1is limited to t h e minimum necessary for current needs. Ifeasnres are inaugoratecl t o assure t h a t all financial obligat.io]is, individual and organizational, of any kind whatsoever, except those pertaining to the Quarternlaster and Paymaster Departments, are liquidated prior to claparture. This procedure should be comprel~ensive, thorough. :md timely in oriler t o of claims by individuals against n>enlbors elintinate the s~~blnission

SWM 15-11

FINAL \\'ITHDRAI\'AL

of the United St,ates forces or against tl~e United States Government after tile final ~\.itlldra~rnI has heen effected. The procnrement and retention of releases anrl signed receipts from firms and individuals baviirg fimlncial clealings wit11 tlre United States forces or \\-it11 individual rneinbers of t h e Gnited States forces will eliminate tlre filing of delayed clninrs for reimburse~nex~t. Tlre first section prepares the ad~ninistrntire annexes with which t l ~ a section t is concerned. 1&11. Second section.-The second section continues its normal attention to tire reaction of the populace act.ivit,ies,pnying ,r~:trtic~~lar to the co~rtemplatecl witlidramal. Steps are take11 to tnlcorer the a(.tivit.ies of agitators or others who may attempt to interfere with (lie withilr~~rnal.B p ~ > n ~ p r i a te action is taken to see that niaps and ~norrogrnphs of the conntry are up-to-(late and as ttcc~~r:tte as circurnstnnces mill permit. Iirforrnatim~thus collected may be of iiiestinrable frrtnre \.alnr. 1512. Third section.-The third se,ction continues its nornial functions. A continnc~ussti~dyof the sitllation is conducted in order that t h e section rnay be. prepared to make recommerrdations for changes in the plan ~rhen the circumstances demand. TI& m i l i t a r ~ situation may change ssncldenlp. and tentative plans mnst be prepared for tile renewal of military operations, sl1ould such action become necessary. A thrrrongl~ stndy of tho ammunition reqniren~ents shonld be made wit11 doe regard to tho military situation, as well as to the fact t h i ~ it t is desirable to keep such supplies a t the minimum nwessary for rdirnated requirements. ltc-13. Fourth section.-The fourth section is ordinarily confronted with a hutge mass of detail prior to and dnring the mithilralr.al. The fourtll section prepares and distributes administrative instructions and administrative orders to corer the details of the pwiod of withdrawal. Provision i s made. for t h e disposition of all snpplies, inclutding ammunition, matov transportation, and animals. Steps aretaken to dispose of real estate. shelter, and other facilities. In all cases, signed releases are obtained from lessors. Arrangement is made to dispose of all the utilities maintained by the United States fnrces. I n order that the movement of excess supplies may bt! expedited, a schedule is prepared covering the tonnage t o be shipped daily. A contini~ot~s sttudy of the situcat.ion mnst be conducted in order that. prospective o r emergency changes may b e met mith adgoate supply arrangementsl and in order to insure the proper disposition of supplies and property. I n general, all excess supplies that are to be returned to the continental United States

SWM 15-14

FINAL \TVITIIDRAWAL

are nioved to the IJnitecl States as early as possible. Care must he taken, l i o ~ e v e r ,not to reduce, the arnount of supplies below the estimated require~nents. The equipment for all organizations shonld be ~ ~ d n c e tod that nutliorizecl for 'xpeditionary units in existing tables of organization, in advance of the date of withdrawal. The no~liialreserve of supplies carried by the force may be used before drawing on tlie s~zppliesin tlie basts depot or depots. The depots a t emba.rkation points change from receiving :ind distributing centers to collecting and shipping centers. They shonlcl be kept szipplierl n.itli outbound freight to insure that ill1 available ship space is utilizeil. Arrangen~entsa r e made for t h e transportation of depende.nts and troops by lanil and water, including the operation of ports of embarkation. iimilable governme~~t transportation is employed to tlrr fnllest possible extent in cfferting the mitliclv:~\~--a1 of hoth perso~niela1111 maGrie1. Orders are issned relative to Irighway circulation : I I I ~ tlio cont,rol of trnffir. Decisio~iis ni:idc 21s to the priority of tlia expenditure of fnnds. T h e evacuation of hospital patirnts to the continent:~lITnitell States shoul(l be carried out mit.11 a vim to reducing tlie numher rernainiiig in field hospitals t o a nlinimum as the final day np~wowl~es. 15-14. Special staff duties.-The disposition of extra eqnipment and supplies is an important duty of all special staff officers. Definite armngements are necessary to prevent the loss of snpplies as a resnlt of carrying excess storks. However, a proper amount of supplies must he maintained until the date of n,itl~drawal. 15-15. Air officer.-All active planes are maintained in coxilmiss;ion a s long as practicable. and a r e flolvn or shipped to the continental Uz~itedStates. Since adverse flying weather may delay tthe &partt~rc of the planes by air, the date of departure for planes being flo~rn t o the continental 111iited States n~illnormally be placed somewhat in advance of the di~te of depnrtnre of the last troop units. Consideration should he given to the fact that supply and maintenance facilities d u r i n ~ the period immediately preceding the date of n7ithdlwwal mill be ~omewhat. limited. Air operations should be reduced t o the minimum reqnired by the military situation in order that all planes may be i n prnper mechanical cor~dit,ion prior to their depart . ~ ~from r e tho country. 15-16. Engineer officer.-The engineer officer is in charge of the dismantling of portahle construction that is to be returned to the continental United States. The construction of cranes and other weight-lifting machinery may be required t o move and load heavy

SWM 15--17
I?lSAI, I!'ITIJI~I121\\~,:II~

amterial. If existing dock facilities are cleficient, preparations are made to reinforce and enlarge socli f:icilities or to construct floating docks if required. The cooperation of naval forces at the port. or ports of emb:~rkation be of considerable assistance. 1&15. Communications officer.-rlie commru~icntionsoficer is responsible f o r the mainte~lanceof com~no~iications until the last is closed. Plans :\re n~ndefor the disposition of cornliea~Ir~~ia~-ters monicatio~~ equiplr~ent. Field rarlio sets :Ire employed from the time pwnlanent stations are closed mitil the arrirtrl of naval vessels. Arr:~ngementsa r e n~ade xith nnrnl ~cssels to tnlro over rndio comnlni~ication on a rlate just prior to the final dete of ~ i t h d m v a l . Provision is made for t h e opcmtion of n message center and messenger service nntil the hearlqnarters of the. 'l!niird St:~tcsforces is closed. Telephone service is continued a t iln~~ortant stations hv means of field sets or permanent instnllntions until the final date of mithdmn-al. 15-18, Surgeon.-Field hospitals are n~riintnin~d to meet maximum rcqoirerne~ltsulrtil the n:trnl forrrs prc.,sent are able to furnish hospitalization. Pnticmts are ovacnated frorn field hospitals as sonn as ships are amilable. Plans are niaile for t h e evacuation of casnalt,ies to the nnbarl~ation point. or points in case of casualties during movement to the latter. Special sanitary measnres are adopted, proride,d it is found necessary to concentrate civilian dependents nnd ndditional troops i n concentration areas prior t o embarkation. Provision is made for t h e assignment of additionnl ~nediealpersonnel to units evacuated on ships that are not equipped as transports. 1.5--19. Quartermaster.-n. T i e quartermaster is charged \vit,h the preparation f o r shipment of equipment a n d snpplies t h a t are to he trlrnsported t o the. continental lJnited States. I n all cases, excess snpplies are shipped a t the earliest prt~rticable date. Household effects and ha,zgage shonlil he shipped prior to the. date of final vithdrawal. The supplies and equipment are, however, maintained in proper qtiantity until the ilnte of departure in order to care for current needs. Arrnngements arc made for the operation of quartermaster utilities, stornge, and repair facilities to the capacity required until the naval forces afloat can take over such functions. The transportation of snpplies and troops by land and vater is a function of the quartermaster. h a d i n g plans are completed in detail in order thnt the movement of troops and supplies may be carried out without confusion or delay. b. All ut~ser~~iceable property of every kind sliould be surveyed and sold in order to avoid congestion and rush in the final days of the

SWM 15-19
FISiiIi \TITIIDRATVAT,

~~ithdm~m Unserricerible l. property sliould be disposed of, escept. suclr iteins as cooking ranges! mess equipnrei~t, and otlter siinilar articles that a r e required for use np to the date of withtlrn~val. Property that is serviceable, but. so ~ronr that i t i s not worth trnnsl~ortationtu the United Sti~tea, sliould be sor~eyed i~nd sold. Careful c.onsidcration sltonlcl be given to all inst~~llations of refrigerating eqt~il)meirtand like iteins 11-it11 it, view t o local disposition of lrenvy iteins of sncll natnre \rl~ose condition does not fully \\-arritnt return to the contineat:~lUnited States for future militnry use. Steel cots, worn masquito nets, nratt~esses,sl~eets: old office furniture, iund other articles of this nature slrould be surveyecl :tnd solcl. c. Stocks of clothing aird s~~hsistrncr storrs, as ~x.ell as otlrer itenls nf normal supply, sho111dbe reilnced to n ~uii~inruin prior to eracnatio~r by making reqnisition for replacements o11ly \vllen absoh~telyneccssnry. Slipplies of this natnre reiiiai~iing on llarrd a t tlre time of witlidmval sl~onldbe returned to tlie United States. A 1 1~~~ea~~oiis~ ordnance stores, amrnnnition, and other classes of stores tlr:~t are wrvicenble s l l o ~ ~be l dreturned to the contine~ital Unitril States. d. Motor transportation and motor transl)ort equipment shoillrl be carefi~lly inspected and all that is not. considered serviceable for future nse shonlil be disposed of by sale. All rndio equipment that. is serviceable sltould be returned to tlie continental United States. I'articular care, sl~ouldbe titken to see that such equipment is carefully pricked under tlie direct snperrision of tlie coinmunications officer, in order to avoid da~nage in shipment. Such eqi~il)nreiit sl~oolct be r e t ~ ~ n ~ ed complete with all spares and accessories t~vailnble. e. Tlle mitl~dra~fi~l period ~villreqiiire tlie appropriation of more r foref ~ m dt shan would ordinarily be required. Reqniremeiits mnst k seen, anrl wrangenients made for the proelirernent and allottnent of tlir extra firnds 1rt.Ii in ndvnnce of tile date of 1ritlldra\ra1. j. All contracts for snpplitx tare cnnce1t.d. final payment. is rnnclc?, and receipts ohtained. Proper rclmses arc of~taine.rl froln lessors of all property in orcler to avoid snhsequrnt claims for damage. Briildin@ belonging to the United States forces locatecl on 1:1nrl belon,gising t o the foreign g ~ v ~ n t n i e n t ll~oseco~kstructi!d011 1c.asetl and land should be sold.