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a. Small wars seldom develop in accordance with any stereotyped procedure. Certain phases of those listed below may be absent in one situation; in another they may be combined and undertaken simultaneously; in still others one may find that the sequence of events or phases may be altered.

The actual operations of small wars may be arbitrarily divided into five phases as follows:

Phase 1. Initial demonstration or landing and action of vanguard.

Phase 2. The arrival of reenforcements and general military operations in the field.

Phase 3. Assumption of control of executive agencies, and cooperation with the legislative and judicial agencies.

Phase 4. Routine police functions.

Phase 5. Withdrawal from the Theater of Operations.

b. First phase.—Initial demonstration or landing and action of vanguard. .

(1) One of the most common characteristics of the small wars of the United States is that its forces “dribble in” to the countries in which they intervene. This is quite natural in view of the national policy of the government. It is not at war with the neighboring state; it proposes no aggression or seizure of territory; its purpose is friendly and it wishes to accomplish its objectives with as little military display as possible with a view to gaining the lasting friendship of the inhabitants of the country. Thus our Government k observed endeavorin'? to accomplish its end with the minimum of troops, in fact, with nothing more than a demonstration of force if that is all that is necessary and reasonably sufficient. This policy is carried on throughout the campaign and reenforcements are added by “driblets,” so many companies, or a battalion, or a regiment al a time, until the force is large enough to accomplish its mission or until its its peacetime limitations in personnel have been reached. Even after landing, instructions probably will be received not to exert any physical force unless it becomes absolutely necessary, and then only to the minimum necessary to accomplish its purpose. Thus orders may be received not to fire on irregulars unless fired upon; instructions may be issued not to fire upon irregular groups if women are present with them even though it is known that armed women accompany the irregulars.

(2) During the. initial phase small numbers of troops may be sent ashore to assume the initiative, as a demonstration to indicate a determination to control the situation, and to prepare the way for any troops to follow. This vanguard is generally composed of marine detachments or mixed forces of marines and sailors from ships at the critical points. Owing to its limited personnel the action of the vanguard will often be restricted to an active defense after seizing a critical area such as an important seaport or other city, the capital of a country or disturbed areas of limited extent.

c. Second phase.—The arrival of reenforcements and general military operations in the field.

During this period the theater of operations is divided into areas and forces are assigned for each. Such forces should be sufficiently strong to seize and hold the most important city in the area assigned and to be able to send combat patrols in all directions. If certain neutral zones have not been designated in the first phase, it may be done at this time if deemed advisable. During this phase the organization of a native military and police force is undertaken. In order to release ships’ personnel to their normal functions afloat, such personnel are returned to their ships as soon as they can be relieved by troops of the expeditionary force.

d. Third phase.—Assumption of control of executive agencies, and cooperation with the legislative and judicial agencies.

If the measures in phase 2 do not bring decisive results, it may be necessary to resort to more thorough measures. This may involve the establishment of military government or martial law in varying degree from minor authority to complete control of the principal agencies of the native government; it will involve the further strengthening of our forces by reenforcements. More detachments will be sent out to take other important localities; more active and thorough patrolling will be undertaken; measures will be taken to intercept the vital supply and support channels of the opposing factions and to break the resistance to law and order by a combination of effort of physical and moral means. During this period the marines carry the burden of most of the patrolling. Native troops, supported by marines, are increasingly employed as early as practicable in order that these native agencies may assume their proper responsibility for restoring law and order in their own country as an agency of their government.

e. Fourth phase.—Routine police functions. (1) After continued pressure of the measures in phase three, it is presumed that sooner or later regular forces will subdue the lawless elements. Military police functions and judicial authority, to the extent that they have been assumed by our military forces, are gradually returned to the native agencies to which they properly belong.

(2) Our military forces must not assume any judicial responsibility over local inhabitants beyond that expressly provided by proper authority. The judicial powers of commanders of detached posts must be clearly defined in orders from superior authority. Furthermore, as long as the judicial authority rests squarely upon the shoulders of the civil authorities, the military forces should continually impress and indoctrinate them with their responsibility while educating the people in this respect. Each situation presents certain characteristics peculiar to itself; in one instance officers were clothed with almost unlimited military authority within the law and our treaty rights; in another, less authority was exercised over the population; and in the third instance the forces of occupation had absolutely no judicial authority. The absence of such authority is often a decided handicap to forces of occupation in the discharge of their responsibilities. If the local judicial system is weak, or broken down entirely, it is better to endow the military authorities with temporary and legal judicial powers in order to avoid embarrassing situations which may result from illegal assumption.

(3) During this phase the marines act as a reserve in support of the native forces and are actively employed only in grave emergencies. The marines are successively withdrawn to the larger centers, thus affording a better means for caring for the health, comfort, and recreation of the command.

f. Fifth phase.—Withdrawal from the theater of operations. Finally, when order is restored, or when the responsible native agencies are prepared to handle the situation without other support, the troops are withdrawn upon orders from higher authority. This process is progressive from the back country or interior outward, in the reverse order to the entry into the country. After evacuation of the forces of intervention, a Legation Guard, which assumes the usual functions of such a detachment, may be left in the capital.