MILITARY GOVERNMENT 139 be severely punished; but that those who cheerfully accept the new sovereignty and abide by its orders will be protected and have nothing to fear. d. A statement that the occupying forces come not to make war upon the inhabitants but to help them reestablish themselves in the ways of peace and to enable them to resume their ordinary occupations. 101. SUPPLEMENTAL REGULATIONS.-a. There should always be prepared and ready for issue contemporaneously with the proclamation, or as soon thereafter as practicable, a supplementary order giving definite expression to regulations and detailed instructions on a variety of subjects, such as requisitions, trial and punishments by provost courts and military commissions, restrictions to be placed initially on the inhabitants, etc., in order that the inhabitants of the occupied area may be fully informed from the first as to the line of conduct that is to be expected of them. b. The principal restrictions usually included in this supplementary order relate to unlawful assembly, circulation, identification, possession of arms and ammunition, policy as to manufacture, sale, or gift of alcoholic beverages, and offenses in general against the personnel, establishments, installations and matériel of the army of occupation. c. The drafting of these regulations, usually at a headquarters far removed from the theater to be occupied, is by no means an easy task. The right of the conqueror to make what ordinances he will is clear, but the view, not infrequently expressed and seriously argued, that since the victor is dealing with a defeated enemy he need not be much concerned about the treatment accorded the inhabitants of the occupied territory, should be vigorously repressed. The question involves more than what is due the inhabitants. It involves what is due the victorious country from the army which represents it. The occupying army in a defeated country is making history which is bound to be written. As that army conducts itself, so is the world largely to regard the country which it represents. If the occupying army is 140 MILITARY AID TO THE CIVIL POWER dishonorable or unjust in its relations with the fallen foe and subjects the population to rules more harsh than are necessary for the preservation of order and the establishment of proper decorum and respect, that army and the country it represents are bound to stand in disrepute before the civilized world. 102. KNOWLEDGE OF CUSTOMS OF THE COUNTRY IMPORTANT.—It is important to have beforehand a thorough knowledge of the customs of the country to be occupied, for the enforcement of regulations which run counter to longestablished customs is always extremely difficult. It is not likely that much difficulty will be encountered in the enforcement of purely military regulations, but where the customary daily life of the civilian population is circumscribed by many restrictions and inconveniences, the tendency is toward frequent or continual violations. Desirable as such restrictions may seem from an idealistic standpoint, they will not be conducive to success unless they are so framed as to harmonize to the fullest possible extent with the psychology of the population which they are expected to govern. In support of this, it is sufficient to point to the " failure of the German administration in Belgium to attain even a small measure of success. The harshness of the rules there sought to be enforced, and the failure to appreciate the patriotism and habits of life of the Belgians, reacted in the end by transforming a race which had previously been far from a homogeneous one into a united and defiant nation. 103. CONFLICTS OF POLICY.-a. The safety of the occupying forces must be assured. Spies must be guarded against. Radical agitators who travel from one country to another, or from one section of the country to another, seeking fertile fields for spreading their propaganda, must be reckoned with. Circulation must therefore necessarily be restricted. Trade usually will be also more or less restricted. These restrictions are in conflict with the provision almost invariably contained in the initial proclamation inviting the people to return to the ways of peace and the pursuit of their ordinary occupations. MILITARY GOVERNMENT 141 b. One of the great aims of the military governor should be so to administer the military government that upon. conclusion of the occupation, the transition to the new state of affairs may be accomplished without radical change in the mode of life of the inhabitants or undue strain in the return to, or setting in motion of, the machinery of their own laws and institutions. Yet, restrictions must be placed upon assemblages, notwithstanding that the people, looking to the future, will want to gather together and discuss platforms of political parties or campaigns for supremacy in their national affairs. Parades and gatherings in celebration of national holidays, and even religious processions on church holidays, may have to be restricted. c. The problem of reconciling these conflicts is one of the most difficult and delicate with which the military government will have to deal. 104. RELAXATION OF RESTRICTIONS.-a. It has been said that our anordnungen issued at the beginning of our experience in occupied Germany were too strict. It is true that, though they remained the basis of subsequent orders, necessity early brought about so many changes that the basis soon almost ceased to be recognizable. It will almost always be the case, however, that the restrictions imposed upon the inhabitants at the beginning will be more severe than the existing conditions actually require. It is better that this should be so, for subsequent relaxation will always create a favorable impression whereas the subsequent imposition of more severe restrictions than were imposed at the beginning, however necessary they may be, will have the opposite effect. b. An important point to be remembered is that the continuation of a rigid military government, with hard and fast restrictions, becomes in the end as burdensome to the occupying army as it is oppressive to the civil population. Severe measures may have been proper while hostilities were in progress or in the early days of the occupation, but there is seldom justification for retaining all of them once the 142 MILITARY AID TO THE CIVIL POWER occupied territory has become peaceful and orderly. Celebration of the homecoming of prisoners of war, or assemblages that are otherwise of such character that they might be turned into hostile demonstrations against the occupying forces, should be prohibited; but church parades and perhaps even political gatherings may be permitted, provided the national colors are not displayed. It will usually be sufficient, if meetings are suspicious, to have American representatives present to report upon or check inflammatory speeches or disorder. 105. STAFF ORGANIZATION.-a. The army and each of the corps and divisions of the occupying forces should ordinarily organize separate staff sections for the administration of civil affairs. These sections will be needed, even though the form of the civil government of the occupied territory be not changed, and even though practically all the governmental agencies, including the local civil officials, be retained and remain in the performance of their duties. The fact that the civil administration is territorial, in the sense that it is fixed or attached to the area, whereas the purely military administration pertains to a tactical command and should therefore remain mobile, and the everpresent possibility of having to continue or resume hostilities, are the principal reasons why this staff section for the administration of civil affairs should be additional to and capable of separating readily from the normal military staff of the occupying forces. The civil affairs section for the army may be organized into appropriate subsections to take care of such activities as public works and utilities, fiscal affairs, sanitation and public health, schools and charities, and legal matters connected with the administration of justice. The civil affairs sections for subordinate tactical units should be organized along the same lines as the army section, even though the functions of two or more of the subsections be performed by the same officer. b. The relationship between the civil and military administrations should always be such that, should it become necessary for the army to move on to a continuation or re MILITARY GOVERNMENT 143 newal of hostilies, the civil affairs contingent may, with a minimum of interference with either civil or military administration, remain in the area and be capable of subsequently extending its sphere of activity to include any additional contiguous territory that may be occupied. Solution of requirements under special situation No. 1 (Blue). ___110 .111 Requirement under special situation No. 2 (Blue) .112 Solution of requirement under special situation No. 2 (Blue) 113 _114 106. MAPS.-Any good general county map of Maryland and Virginia. 107. GENERAL SITUATION.-Maryland and the District of Columbia constitute a weak state (Brown) lying between two strong states, Blue (north) and Red (south). Diplomatic relations between Red and Blue have been strained for some time, and war between them seems inevitable. Blue is stronger than Red, and has control of the sea. A treaty has long existed between Blue and Brown pledging alliance in the event of war with a third state, but in the present controversy the public press and many prominent public officials of the Brown state have openly expressed sympathy with the Red cause. The Brown army consists of only two weak infantry divisions at Washington and one skeleton cavalry division at Baltimore. Washington is the capital of the Brown state. 108. SPECIAL SITUATION No. 1 (BLUE).-The Blue state is in possession of definite information that the Brown state has recently entered into a secret agreement with |