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Department of the navy manual opnav p22 -1115

Department of the navy manual opnav p22 -1115

DEPARTMENT OF THE ARMY FIELD MANUAL FM 27 -5
DEPARTMENT OF THE NAVY MANUAL OPNAV P22 -1115

This manual supersedes War Departmfflt Fidd Manual 27-5 and Nao'Y D<partment OpNa. 50E-3, 22 Du<mber 1943
UNITED STATES ARMY AND NAVY
MANUAL OF
CIVIL AFFAIRS
MILITARY
GOVERNMENT

LOGOS OF USA WAR OFFICE AND USA NAVY DEPARTMENT
DEPARTMENTS OF THE ARMY AND NAry • OCTOBER 1947
For sale by the Superintendent of Doc.Jments, U. S. Government Printing Office,
Washington 25, D. C. • Price 20 cents
PROPERTY OF U.S. AAMY THE JUDGE ADVOCATE GENERAL'S SCHOOL LIBRARY
DEPARTMENTS OF THE ARMY AND NAVY Washington 25, D., C., 14 October 1947 Department of the Army FM 27-5 and Department ofthe Navy OpNav P22-1115, United States Army and Navy Manual of Civil Affairs/Military Government, is published for the information and guidance of all concerned. [AG 300.7 (20 Aug 47)]
DWIGHT D. EISENHOWER
Ohief of Staff United States Army
OFFICIAL:
EDWARD F. WITSELL
Major General
The Adjutant General

C. W. NIMITZ,
Ohief of Naval Operations United States Navy
OFFICIAL:
J. L. McCRAE
Vice Admiral,
Deputy Ohief, Naval Operations
(Administmtion)

ARMY DISTRIBUTION:
WDGS Divs (10) ; WDSS Divs (10) ; AAF (25) ; AGF (25) ; T (25) ; Dept (10) ; Base Comd (5) ; Def Comd (10) ; AAF Maj Comd (10) ; Arm & Sv Bd (1) ; Adm Sv (5); Tech Sv (10) ; Gen & Sp Sv Sch (10) ; USMA (10); ROTC Sch Sr Div (1) ; ZI and overseas: A (25) ; CHQ (10) ; D (10) ; B (5) ; R (3) ; AF (25) ; W (5) ; G (3) ; Overseas only: Bn (2); C (1); S (2); Special distribution.
For explanation of distribution formula, see TM 38-405.
"'1.,.: •.•••
CONTENTS

Para­graphs Page
SECTION I-GENERAL.......................... 1-9 1

II.     
CA/MG RESPONSIBILITIES AND FUNC.

,
TlONS ............ _.... __,...... _.. 10-12 17

III.     
ORGANIZATION AND OPERA.
TIONS........ __.................. 13-20 31

IV.
PERSONNEL. ....... _' ........... _... 21-23 45

V.
PLANS AND ORDERS............... 24-27 50

VI-PROCLAMATIONS, ORDINANCES,
ORDERS, AND INSTRUCTIONS. __ .. 28-30 56

VII.
MILITARY TRIBUNALS.............. 31-32 63

INDEX . ............................__ ............ _. . . 69


III
BLANK PAGE
This manual supersedes War Department Field Manual 27-5 and Navy Department OpNav 50E-3, 22 December 1943

SECTION I
GENERAL

. 1. PURPOSE, SCOPE, AND DEFINITIONS. a. Purpose and scope. (1) Military necessity requires in the con­duct of operations, as well as in the fulfillment of obli­gations imposed upon invading forces under interna­tionallaw, that such forces institute control of civilian affairs by military government or otherwise in the occu­pied or liberated areas.
(2)
This manual states the principles to be followed by the Department of the Army, the Department of the Navy, and their subordinate agencies in planning and exercising control of civilian affairs by military gov­ernment or otherwise in territory occupied or liberated by the forces of the United States. It is for the use of the Army and Navy, whether they are acting alone, jointly, or in concert with forces of allied countries. Such terms as "commanding officer," "military," and "forces" have reference to either or both branches of the service.

(3)
The principles laid down in this manual will be followed in all planning by the Departments of the Army and Navy and their subordinate agencies, unless otherwise directed. As tq minor policies and details of execution, responsible commanders are permitted to depart from the directions herein so far as may be neces­


sary to permit the plan of military government in any area to conform to and to be integrated with the plan ,of military operations.
(4)
War Department Field'Manual 27-10 (Rules of Land Warfare) sets forth the restraints upon the dis­cretion of the theater commander and subordinate com­manders, when dealing with persons and property in occupied and liberated areas, and their obligations under international law.

(5)
This manual is intended for the use of the follow­ing categories of Army and Navy personnel:

(
a) Responsible commanders, for an understanding of their responsibilities, duties, and scope of authority.

(b)
Staff officers, for planning, training, indoctrina­tion, and operation.

(
c) Commanding officers or officers in charge, as an operational guide.

(d)
Instructors and training officers, as a text for use in schools, unit training programs, and in the indoc­trination of personnel.

b.
Definitions. (1) Oivil affair8/military govern­ment (OAIMG). CA/MG encompasses all powers ex­ercised and responsibilities assumed by the military commander in an occupied or liberated area with respect to the lands, properties, and inhabitants thereof, whether such administration be in enemy, allied, or domestic territory. The type of occupation, whether CA or MG, is determined by the highest policy making authority. Normally, the type of occupation is dependent upon the degree of control exercised by the responsible military commander.

(2)
lIfilitary government. The term "military gov­ernment" as used in this manual is limited to aIld de­


fined as the supreme authority exercised by an armed occupying force over the lands, properties, and inhab­itants of an enemy, allied, or domestic territory. Mili­tary government is exercised when an armed force has occupied such territory, whether by force or agreement, and has substituted its authority for that of the sover­eign or previous government. The right of control passes to the occupying force limited only by the rules of international law and established customs of war.
(3)
Oivil affairs. The term "civil affairs" as used in this manual is defined as the assumption by the respon­sible commander of an armed occupying force of a degree of authority less than the supreme authority assumed under milit.ary government, over enemy, allied, or domestic territory. The indigenous governments would be recognized by treaty, agreement, or otherwise as having certain authority independent of the military commander.

(4)
Occupied territory. The term "occupied terri­tory" as used in this manual means any area in which CAjMG is exercised by an armed occupying force. It does not include territory in which an armed force is located but has not assumed authority.

(5)
Liberated territory. The term "liberated terri­tory" as used in this manual denotes a specific form of occupied territory, and is defined as allied or domestic territory which has been recovered by action of an armed occupying force from enemy occupation or from rebels treated as belligerents.


2. AUTHORITY FOR ESTABLISHMENT. The rules of in­ternational law and the established customs of war provide the authority for the control by CAjMG and
. , .
such control must be exercised in accordance therewith. The exercise of such control is assumed by the occupa­tion of an area by force or ,agreement. The important rules of land warfare which govern the Armed Forces of the United States are set forth in War Department Field Manual 27-10 and Technical Manual 27-251.
3.
COMMAND RESPONSIBILITY. The theater com­mander bears full responsibility for CAjMG; therefore, he is usually designated as military governor or civil affairs administrator, but is authorized to delegate his authority and title, in whole or in part, to a subordinate commander. In occupied territory the commander, by virtue of his position, has supreme legislative, executive, and judicial authority, limited only by the laws and customs of war and by directives from higher authority.

4.
REASON FOR ESTABLISHMENT. a. Reasons for the establishment of CA/MG are either military necessity as a right, or as an obligation under international law.


b.
Since the military occupation of enemy territory suspends the operation of the government of the oc­cupied territory, the obligation arises under interna­tionallaw for the occupying force to exercise the func­tions of civil government looking toward the restoration and maintenance of public order. These functions are exercised by CA/MG. An armed force in territory other than that of an enemy similarly has the duty of establishing CA/MG when the government of such territory is absent or unable to function properly.

c.
CA/MG is not confined to a belligerent occupa­tion. Under international law and the United States Constitution it is recognized that military necessity may ryquire the establishment of CA/MG in the follow­


ing cases with or without consent of the existing or prior government in the territory concerned:
(1)
Allied or domestic territory which has been dom­inated, occupied, or is threatened by an enemy.

(2)
Domestic territory recovered from rebels treated as belligerents.


5. PURPOSES. a. The purposes of CAjMG are as follows:
(1)
To assist the military operations.

(2)
To further national policies.

(3)
To fulfill the obligation of the occupying force under international law.

b.
Assistance to military operations is rendered by­

(1)
Maintaining order.

(2)
Promoting the security of the occupying forces.

(3)
Preventing interference with military opera­tions.

(4)
Reducing active and passive sabotage.

(5)
Releasing combat troops from civil administra­tion.

(6)
Mobilizing local resources in aid of military ob­jectives.

(7)
Preventing epidemics.


6. DEGREE OF CONTROL EXERCISED BY OCCUPYING FORCE. Initially in an enemy territory strict control is necessary if the objectives of military government are to be achieved. In allied or domestic territory, co­operation from the officials and inhabitants thereof will permit greater latitude for action by local officials acting under broad policies and general supervision of the occupying forces in pending or future operations. As
762054'--47----2
conditions in an occupied territory approach normal, the control exercised by CAjMG may be relaxed. The supervision of the occupying ,force may become less direct and supreme authority may finally be released to a recognized power. Under CAjMG the degree of control exercised by the occupying force may vary ac­cording to the following:
o.
Future military operations.

b.
Current military, political, economic, social, and other pertinent factors.

c.
Prior agreements between the government of the occupying forces and the government of the territory occupied.


7. RECIPROCAL RESPONSIBILITIES OF OCCUPYING FORCE AND INHABITANTS O.F OCCUPIED TERRITORY.
o. The occupant has the right to demand and enforce from the inhabitants of the occupied area such obedience as may be necessary to effect the following:
(1)
The security of his forces, and accomplishment of the objectives of war as limited by international law and established custom.

(2)
The maintenance of law and order.

(3)
The reasonable administration of the area.

b.
In return for such obedience the inhabitants shall be granted freedom from all unnecessary or unwarranted interference with their individual liberty and property rights.


8. PERIOD OF CONTROL. o. The period of time dur­ing which CAjMG control is maintained will vary, de­pending on the following:
(1)
Continuance of military operations.

(2)
The use of the area as a base for future operations.

(3)
Status of the territory as to its belligerency.

(4)
The degree of cooperation of the inhabitants.

(5)
Policy regarding the future status of the occu­pied territory.

(6)
Other military, political, economic, and social considera tions.

b.
As long as military operations continue, some de­gree of control will be necessary. CA/MG may extend beyond such operations until it achieves the over-all objectives toward which the operations are directed.


9. MISSION, PRINCIPLES, AND POLICIES. o. Mission.
The mission of CA/MG personnel is­
(1)
To assist military operations (primary mission during combat).

(2)
To assist the commander of the occupying force in fulfilling the obligations, imposed upon him under international law and the customs of warfare, to the civilian population.

(3)
To further national policies (primary mission after combat is over) .

b.
Principles. (1) Military neoessity. Military ne­cessity is the primary underlying principle in the con­duct of CA/MG. The prosecution of a military operation to a successful conclusion is the primary con­sideration. It is the duty of a commanding officer to exercise the necessary control and to take the necessary steps in relation to the civilian population which will attain the paramount objective.

(2)
Supremacy of oommanding offioer. The basic principle of military necessity requires that the theater commander must always have full responsibility for CA/MG.

(3)
Scope of activities of OAIMG personnel. Whereas tactical personnel are primarily concerned in combat operations, CA/MG personnel are primarily concerned in handling civilian' relationships in order to further the attainment of the mission. Close adher­ence to this principle in the organization and assign­ment of duties result in the greatest economy of personnel. CA/MG personnel will use and coordinate and will not parallel or duplicate the capabilities and special skills of the administrative and technical serVIces.

(4)
FlewibiZity of plan. Since the conditions under which CA/MG operate will vary widely in a gi"(en area as well as between different areas, flexibility of action must be provided by the preparation of alternate plans in order to meet the rapid changes and alterations which may occur.

(5)
Oontinuity of plan and personnel. CA/MG must be planned and conducted to provide for a con­tinuity of policy and efficient utilization of personnel. Frequent changes in policies and procedures reduce the effectiveness and prestige of the administration, while inefficient use of personnel deprives the occupying forces of the services of personnel who may be used elsewl,lere. Itis essential that directives as to such policies and pro­cedures be transmitted to responsible echelons in time to allow for planning and promulgation.

c.
Policies. (1) Treatment of population. (a) In­ternationallaw requires, and military necessity dictates, just and reasonable treatment of the inhabitants of the area in which the occupying force operates in order to minimize their belligerency and obtain their coopera­tion. The cooperation of the inhabitants, where it can


be secured without endangering the success or ultimate fulfillment of military objectives or international poli­cies, is of direct advantage to the occupying' forces in maintaining public order and accomplishing the objec­tives of CA/MG, thus furthering the military objectives, For humane reasons the welfare of the inhabitants should be maintained and safeguarded as far as military requirements permit, but the primary purposes of such treatment are to facilitate the military operations and to meet the obligations imposed by international law .
. Such treatment will directly assist the occupying forces in establishing and maintaining law and order and pro­curing labor, services, and supplies, but should not pre­vent the imposition of the restrictive or punitive meas­ures necessary to accomplish the mission assigned.
(b) The treatment accorded the population will vary depending upon the attitude of the people toward the occupying force, their degree of cooperation, the degree of their economic, political and social development, and the political and military policy of the government of the occupying force, In order that CA/MG may be carried out in the light of the local situation and its requirements, CA/MG personnel should be fully in­formeu concerning the local population, their customs, institutions, and attitudes. In determing the treatment of the civilian population the following should be considered:
1.     Less restrictive measures will be necessary in dealing with nationals of friendly countries than when dealing with nationals of enemy countries.
13.     Under military government the taking of hos­tages, the imposition of collective fines, or the carrying out of reprisals may in some instances become a military necessity. Such measures should be ,taken only as a last re­sort and then only in order to force a hostile population to desist from unlawful prac­tices. Careful consideration should be given to determine whether such acts will serve as a deterrent or whether they might aggravate an existing difficult situation, as such steps, when taken, indicate a weakness of the occupying force and inability to con­
trol the civilian population.
3.     If necessary, force may be used to subdue resistance to the authority of CA/MG or to prevent escape of prisoners or persons sus­pected of crime. Persons accused of a crime will be given a fair trial before im­position of punishment. Sentences of mili­tary courts will be proportionate to the offense and the need for a deterrent effect; however, maximum punishment will not be awarded automatically. The customs and habits of the population and the types of punishment which have been found to be most effective in that particular locality will determine the nature of the sentence to be imposed and the manner of execution, that is, whether private or public.
(2) Retention of existing laws, customs, and political subdivisions. Except where they conflict with the aims of military government or are inimical to its best inter­ests, and to avoid confusion and promote simplicity of administration, local laws, customs, and institutions of
,
government will be retained. For similar reasons it is advisable wherever possible to retain existing political territorial divisions and subdivisions.
(3)
Retention of local government departments and officials. (a) The military governor, or civil affairs administrator, may temporarily discontinue or suspend offices and departments which are unnecessary or detri­mental to CA/MG.

(b)
In the case of military government, since supreme legislative power is vested in the military governor, existing legislative bodies will usually be suspended.

(c)
In the case of military government, high-ranking political officers and other administrators will usually be removed from office. Such removal will include the nominal and actual heads of the national government, cabinet ministers, and heads of the principal political divisions. No permanent appointments to such posi­tions will be made by the military governor without approval of higher authority because of the political implications of such appointments. Government offi­cials who are members of unfriendly partisan organiza­tions will ordinarily be removed from office as will other officials who are considered to be unreliable or untrust­worthy. Wilful failure of those officials who have bBen retained in office to perform their duties satisfactorily will be regarded as basis for removal from office.

(d)
Subordinate officials and employees of the local government will usually be retained in their respec­tive offices and will be responsible for the satisfactory discharge of their duties subject to the direction and supervision of the CAIMG personnel.

(e)
In some areas, because of the domination of for­eign power, the indigenous civilian population may have


had a very limited participation in the government. The local civil officials may have fled upon invasion, or if they have remained, it may be inexpedient or un­safe to continue them in office; therefore, it may be nec­essary for CAjMG officials to train local personnel to assume the responsibilities and duties of the offices which have been vacated.
(f)
CA/MG personnel will, as far as practicable, deal with the civilian population of the occupied ter­ritory through these officials and employees who are retained or appointed. Upon removal of an official, a replacement will be made from among the inhabitants who by training and experience are best qualified to assume the duties of the office vacated. In the selection of officials, care and consideration will be given to their reliability, their willingness to cooperate with CAlMG, their positions in the community, as well as their other qualifications for the position. Except in unusual cir­cumstances, appointments from a political faction or clique, regardless of their frendly sentiments or attitude, will be avoided. CA/MG personnel will, if possible, confine themsel ves to supervision and will a void assum p­tion of the duties as operating head of a political sub­division or a department of government.

(g)
Except upon direction from higher authority, the existence of local political personalities or organized political groups will not influence CA/MG policies nor ­will CA/MG personnel make any commitments to or negotiations with any local political elements.

(h)
Persons who continue in or are assigned to local public office may be accused of disloyalty because of co­operation with occupation forces by hostile inhabitants of the area, and their persons and property may be


threatened or endangered. ·Where necessary, protec­tion will be provided to such threatened persons and their families by the CA/MG.
(4) Political pri8oner8. Persons imprisoned by the previous government for political or racial reasons will be released only after investigation. They will be warned that political activity on their part inimical to the policies of CA/MG will not be tolerated. Plans should be drawn for the housing, care, processing, as well as for the :r:epatriation of such released persons.
(5) Economic policy in relation to oC<J'/1!pied areas.
(a) The basic economic policy of the United States CA/MGis­
1.     To revive and stimulate the economy in the area in order to reduce to a minimum the needs of the occupied area for United States and allied assistance.
13.     To develop the area as a source of supply for further operations; and to use available goods and services for the satisfaction of immediate military and civilian needs.
3.     To augment the economic rehabilitation to the extent necessary to accomplish the objectives of the occupation.
(b) To accomplish the objectives stated in (a) above, the following will be necessary:
1.     Equitable distribution of food, fuel, medicine, and clothing.
13.     Reestablishment and control of the essential industries, public utilities, transportation, communications, and trade.
3.     
Institution of control over prices, the domestic flow of goods, imports and exports, money and banking.

4.     
Institution or continuance of a rationing sys­tem and other forms of control to suppress black-market activities.


762054°-47--3
(0) Decisions must be made as to what types of eco­nomic activity are most important and surveys will be made to determine what usable facilities and undevel­oped resources are available. Normally plans will be made for the rehabilitation of agencies for the resump­tion of essential output in agriculture, manufacturing, mining, forestry, fishing, and in the service trades. In order to accomplish the above it may be necessary to do the following:
1.     
Provide agriculture and industry with essen­tial equipment and materials from domestic sources or through imports.

2.     
Establish labor pools to provide the labor supply required for army and civilian activities.

3.
Assure regular and adequate hours of work.

4.     
Control labor organizations and prevent wage IncreaEies.

5.     
Establish priorities for the use of scarce iteD;ls and allocate material for specific uses.

6.     
Supervise and in some cases assist in the man­agement of industries.


(6)
Health of inhabitants of oocupied area. Safe­guarding and improving the health of the civilian popu­lation in an occupied area is necessary, not only for humanitarian reasons, but to protect the health of the occupying troops; therefore, through use of indigenous resources and personnel to the fullest extent possible, the following steps must be taken:

(a)     
The dead must be buried.

(b)
Garbage and refu~e collection must be organized and sewage disposed of.

(c)
The water supply must be protected from con­tamination and pollution.

(d)
Food inspection must be established.

(e)
Malaria and insect control must be instituted and other necessary steps taken to prevent the spread of disease.

(f)
Necessary medical care must be provided for the civilian population.


(7) Respect for religious customs and organizations.
International law requires that religious convictions and practices be respected. Consequently, places of re­ligious worship will not be closed unless necessary as a security or sanitary measure or unless there is evidence that an undesirable nationalistic or political ideology is being practiced under the guide of religion. How­ever, the practice of any customs or the observance of any traditions which do not violate civilized concepts may be permitted.
(8)
DiscTi1J~inatory laws. Discriminatory laws based on race, color, creed, or political convictions will be repealed as soon as the situation permits.

(9)
Freedom of speech and pTess. To the extent that military interests are not prejudiced, freedom of speech and press will be instituted and maintained.

(10)
Protection of aJi'chives amd recOTds. Since ar­chives and records, both current and historical, of all branches of govermnent of the occupied area are of immediate and continuing use to CA/MG, it is essential to seize and protect them.


(11) Seizure and protection of mail and documents.
Since mail and documents found in post offices and
lS
other central communication centers is a source of valu­able intelligence information to the occupying forces, such mail and documents will be seized and protected and immediately made available to the intelligence agencIes.
(12) Protection of shrines and works of art. Except where military necessity makes it impossible, historical and cultural monuments, works of art, and religious shrines will be preserved.

SECTION II
CA/MG RESPONSIBILITIES AND FUNCTIONS

10. RESPONSIBILITY OF ARMY AND/OR NAVY IN OC­CUPIED AREAS. Depending upon the nature of the operation, responsibility of the Army or Navy for the control of CA/MG in ocupied areas will be determined by the Joint Chiefs of Staff of the United States Army and Navy or by the Combined Chiefs of Staff of the United States and its Allies. In general, it is expected that the responsibility in continental areas will be dele­gated to the Arm, while control of CA/MG in small island areas and in some ports will be delegated to the Navy. CA/MG staff sections or units may be composed of naval and/or army personnel, and staff sections may be assigned to staffs of Army or Navy.
11. PROBABLE POLITICAL, ECONOMIC, AND SOCIAL CONDITIONS EXISTING IN OCCUPIED AREAS. CA/MG
personnel will probably encounter one or more of the following conditions existing in the occupied areas affecting their functional responsibilities:
a. Political conditions. (1) Civil administration may have broken down either wholly or in part and responsible officials may have fled or have been deposed; or, if still holding office, may be unreliable.
(2)
The local public safety agencies may have been disorganized, resulting in rioting, looting, property damage, and other forms of civil disturbance.

b.
Economic conditions. (1) The economic life of the area may hav~ been reshaped to a "new order" or disrupted by a "scorched earth': policy of a retreating enemy.

(2)
Agricultural and industrial activities may be paralyzed or disrupted resulting in a serious shortage of foodstuffs and other essentials as well as the means of transport thereof.

(3)
A large number of people, if not the entire popu­lation of the area, may be without adequate food or shelter and great numbers may be unemployed or without any means of support.

c.
Social conditions. (1) The enemy may have im­ported forced laborers from foreign areas who will seek repatriation. There may also be displaced persons whom it may be advisable to repatriate.

(2)
Public and private welfare institutions may have been wholly or partially destroyed.

(3)
The water supply may be disrupted or polluted.

(4)
The injured and wounded civilians may have received little or no attention and the dead may not have been buried. Medical supplies may be scarce and the health and morale of the population under­mined. There may be few facilities available to aid in the prevention of the spread of diseases.

(5)
There may be a scarcity of professional personnel such as doctors, lawyers, engineers, and other specialists.


12. FUNCTIONS. The primary functions of CA/MG personnel during hostilities is to further the mission of combat forces in every way possible, such as by ad­ministration of the civilian population so as to prevent interference with military operations, and by reconstruc­tion of civilian administration and the economy so that local resources in manpower and essential materials may be utilized to further the military operations. The du­ties ofCAjMG personnel will involve a variety of activities since the responsibility of the commanding officer may range from controlling a few simple func­tions of government in a small, isolated, rural region or primitive island, to controlling the many and com­plicated functions of government in a large, densely populated, industralized continental area. CAJMG personnel are charged with performing or supervising the following functions in their respective areas:
a. Maintenance of law and order. CA/MG person­nel are charged with the reestablishment and mainte­nance of law and order and the security of persons and property in their areas. To accomplish this they will­
(1)
Prepare, issue, and enforce the necessary procla­mations and ordinances concerning the conduct of the inhabitants of the area among themselves and toward the occupying force.

(2)
Collect and take into custody all arms, ammuni­tions, explosives, and other implements of war.

(3)
Reestablish the police force and, if necessary, supplement it by military police, or shore patrol.

(
4) Establish procedures for the prevention, detec­tion, and prosecution of crime.

(5)
Control the sale of liquor and narcotics.

(6)
Establish control of traffic.

(7)
Administer jails and prisons.

(8)
Reestablish the fire department, or establish a new one.


b. Participation in political government and admin­istration. CAjMG personnel are charged with the su­
pervision of and, in rare instances, the actual adminis­tration of the chief political offices of the government such as those of the chief exe~mtives, ministers, secre­tariats, and other high-ranking executive or adminis­trative officials on the national, provincial, or municipal levels. Arrangements must be made for the screening and elimination of officials who do not meet the require­ments established by the occupational directives.
c. Establishment of courts and administration of law.
CAjMG personnel are charged with the following:
(1)
Establishment and administration of military commissions, provost courts, and special military gov­ernment courts, and their jurisdiction and procedure.

(2)
Supervision, control, or closing, if necessary, of local, criminal, and civil courts.

(3)
Supervision of members of the local. bar.

(4)
Decisions as to modifications or suspension of local criminal and civil laws.

(
5) General legal ad vice and assistance on all aspects of the occupation.

d.
Civilian protection. In order to relieve the occupy­ing forces of as much responsibility as possible for the welfare of the civilians in the event of bombing, shell fire, or other military operations, CAjMG personnel are charged with the establishment, supervision, and strengthening of existing local organizations for civil­ian protection in order to provide for air-raid warning, black-out shelter, fire fighting, emergency medical care, evacuation, demolition, rehabilitation, and other acti vi ties.

e.
Civilian supply. CAjMG personnel are responsi­ble for­

(1)
Obtaining supplies for civilian relief such as food, clothing, shelter, and medical aid through ac­cepted channels to­

(
a) Meet minimum subsistence standards to prevent such widespread disease and unrest as would endanger the occupying force, and to meet the objectives of the occupation.

(b)
Preserve order among the inabitants to enable them to carryon with such agricultural, industrial, com­mercial, and other activities as may be of direct benefit to the occupying force.

(2)
Establishing local organizations for the admin­istration and distribution of civilian relief supplies.

(3)
Providing other essential civilian goods which may be necessary to the reestablishment of law and order.

f.
Public health and sanitation. In order to improve or; preserve the state of public health and to protect the occupying forces, CA/MG personnel are charged with­

(1)
Control, prevention, and treatment of disease.

(2)
Rehabilitation and supervision of hospitals.

(3)
Furnishing of medical and sanitary supplies.

(4)
Protection of food and water supplies.

(5)
Disposal of sewage and waste.

(6)
Arrangements for the treatment and evacuation of wounded civilians.

(7)
Promulgation of such other medical and sanitary measures as are deemed necessary.

g.
Civilian censorship. Censorship of civilian com­munications will normally be established in -the very earliest phases and may continue throughout the period


762054°--47----4
of occupation in order to maintain military and civilian security and to obtain intelligence information. There­fore, its operation by CA/MG will require close liaison and cooperation with the military intelligence staff and other agencies from which censorship policies and directives emanate.
h. Civilian communications. CA/MG personnel will­
(1)
Cooperate with signal or communication officers in the use of civilian communication systems by the oc­cupying forces.

(2)
Assist the tactical troops and civilian agencies


in the reestablishment, control, and supervision of civil­ian communication facilities.
i. Civilian transportaton and other public utilities.
CA/MG personnel will­
(1)
Cooperate with the appropriate arms and serv­ices in the reestablishment, control, and supervision of all transportation facilities and public utilities needed for military use.

(2)
Reestablish, control, and supervise all trans­portation facilities and other public utilities needed for essential civilian use.

j.
Port duties. CA/MG personnel will establish and maintain liaison with naval authorities afloat and ashore and will render assistance to port directors in­

(1)
Control and movement of civilians within port areas, including those who live on houseboats and small harbor craft.

(2)
Procurement and control of necessary civilian labor for port activities.

(3)
Handling and routing of supplies ashore and inland.


k. Control of currency and banking. CA/MG per­sonnel are charged with­
(1)
Execution of policies concerning currency as fixed by higher authorities, such as the designation of the types of currency to be used and the rates of exchange.

(2)
Supervision of the issue and the use of all types of money and credit, and establishment of proper con­trols over use of military and indigenous currencies used by occupation forces.

(3)
Provision of currency required for use by the occupation forces.

(4)
Prevention of financial transactions with enemy occupied or enemy territory.

(5)
Control of foreign exchange transactions.

(6)
Declaration of debt moratoria.

(7)
Closing of banks if necessary.

(8)
Guarding of banks, bank funds, safe deposit boxes, securities, and records.

(9)
Providing interim banking and credit needs.

(10)
Liquidation, reorganization, and opening of banks at appropriate times.

(11)
Regulation and supervision of credit coopera­tives and other financial agencies and organizations.

(12)
Making arrangements for the rapid reestablish­ment of pension payment facilities or other monetary services required to maintain normal living conditions in many foreign areas.

(13)
Establishment of appropriate procedures for recording costs of occupation and maintenance of such

(1)
Supervisions and audit of the budget, revenues, and expenditures.

(2)
Supervision of the collec~ion of taxes, fines, and assessments.

(3)
Handling of public funds, including revenues from government monopolies and levying of contribu­tions, and the provision for necessary financial facili­ties for civil administration.


records.  
I. Public  finance.  CA/MG personnel  are  oharged  
with­
23  

m. Control of commodities, prices, and rationing. ' CA/MG personnel are charged with­
(1)
Supervision and distribution of food and other supplies.

(2)
Establishment and control of prices, rationing, and other measures to prevent hoarding and black­market activities.

(3)
Regulation of exports and imports.

(4)
Allocation of imports for local distribution.

(
5) Control, under existing policies, of requisitions and purchases by the military from the local economy.

(6)
Establishment of policies for the rehabilitation
of the local economy.



n. Agriculture. CA/MG personnel are charged with
furthering maximum agricultural production through­

(1) Establishment and administration of food pro­
duction programs, reclamation and conservation of . lands.
(2)
Institution of policies for land reforms.

(3)
Improvement of agricultural methods.

o.
Industry and manufacture. CA/MG personnel
will develop and supervise essential industrial and man­
ufacturing facilities to­

(1)
Satisfy the immediate needs of the civilian popu­lation to prevent such widespread disease and unrest as would endanger the occupying force.

(2)
Further the military objectives of the occupying force.

(3)
Develop the production of goods for export to assist in defraying the cost of the occupation.

(4)
Further th@ long range United States and Allied economic and political policies.

p.
Commerce and trade. CA/MG personnel will take necessary steps to stimulate domestic trade to ensure normal distribution of essential civilian goods and thus further economic stabilization.


q. Labor relations. CA/MG personnel are charged with­
(1)
Procurement of labor to assist the military forces.

(2)
Procurement of labor for rehabilitation and re­construction in the occupied territory.

(3)
Cooperation with other arms and services in the establishment of a standard wage scale, a schedule of hours of work, and of a policy for the equitable distribu­tion of available labor.

(4)
Supervision of labor organizations and the han­dling of labor relations problems, including provision for medical care and compensation in cases involving temporary disability.


r. Custody and administration of property. CA/MG personnel are initially charged with­
(1)
Custody and administration of all property and enterprises owned wholly or in part by an enemy govern­ment, or by enemy nationals of countries other than that occupied.

(2)
Custody and administration of all property and enterprises owned wholly or in part by other govern­ments, if taken over by the occupying forces.

(3)
Custody and administration of private property susceptible of direct military use and not in the custody of another branch of the armed forces.

(4)
Assisting in the formulation of policy for the requisition of private property for military use.

(5)
Assisting in the requisition of private property for military use under existing policies.



s. Information and intelligence. To maintain and improve relations between the occupying forces and the inhabitants of the occupied area, CAjMG personnel will interpret to the inhabitants thereof, the policies and purposes of the occupation through use of all media of information dissemination available, such as press, radio, and motion pictures.
t. Disposition, repatriation, or relocation of displaced persons and enemy nationals. CAjMG personnel are charged with the control, care, repatriation or other dis­position of­
(1)
Allied or neutral nationals.
. (2) Political prisoners and forced laborers.


(3)
Displaced persons, including demobilized mem­bers of the enemy armed forces and civilian nationals of enemy countries.

u.
Education. To develop democratic processes and principles, CAjMG personnel, through the integration of education with the social and political life of the area, are charged with­

(1)
Opening of schools.

(2)
Supervision of the educational system.

(3)
Revision of textbooks.


26
(
4) Prevention-of subversive or· harmful instruction.

v.
Public welfare. CA/MG personnel are charged with­

(1)
Assisting in the distribution of civilian relief supplies.

(2)
Supervision of public and private institutions for the care of the children, the poor, the physically and mentally handicapped, and the aged.

(3)
Reestablishment of local charitable and relief organizations to maintain the operati'on of such in­stitutions.

w.
Records and reports. CA/MG personnel are charged with keeping full and complete records for the military commander in all fields of CA/MG. Such records are essential data for use at peace conferences, trials before claims commissions, investigative bodies, arid for historical purposes.

x.
Coordination with other staff sections. (1) The­ater' of opemtions. Problems will arise which will re­quire coordination between CA/MG officers and other sections of the staff whether the operations be unilat­eral, joint, or combined. Members of CA/MG staff sections must establish relations with the members of other staff sections concerning mutual problems, and develop standard operating procedures which will in­sure expeditious action in fields of interrelated interests and activities such as coordination and supervision with­

(
a) The following general staff sections:


1.     {}-1. Procurement, classification, reclassifica­tion, assignment, pay, promotion, transfer, retirement, discharge, decorations, citations, honors, awards, leaves of absence, furloughs, rewards, and punishment of CAjMG per­sonnel, internal arrangements of head­quarters, personnel statistics, sanitation, burials.
93.     G-42. Collection and interchange of intelli­gence information relating to the enemy population; requisitions tor maps; regula­tion of censorship and other measures to preserve secrecy; counter-subversive ac­tivities.
3.     
G-3. Training of troops in CA/MG activities; use of signal communications, movements of troops; areas of operation or occupation; coordination of tactical and CAjMG plan­ning for current and future operations.

4.     
0--4. Procurement of supplies in enemy terri­tory; distribution of supplies to MG units; control and supervision of transportation and other utilities; evacuation and hospital­ization; salvage; property and funds; pro­curement of shelter and facilities; employ­ment of native labor; preparation of CAj MG annex to the administrative order; allocation of supplies for the use of civilians; integration of plans, including allocation of supplies for CAjMG.


(b) The following special staff sections and technical services:
1. Antiaircraft. Defense against air attack.
93.     Ohemical. Collective protective measures and arrangements for proper training of per­sonnel.
3.
Engineer.     Construction and maintenance of roads, docks, and utilities, and distribution of maps.

4.     
Headquarters commandant. Detail of order­lies and messengers. Messing and quarter­ing of CA/MG office space.

5.     
Provost marshal. Employment of military police on CA/MG duty. Control of con­duct of troops in relation to civilian popula­tion and the control and supervision of civilian circulation.

6.     
Signal. Use of military and commercial sig­nal communications.

7.     
Surrgeon. Health and sanitation, use of civilian hospitals for military purposes, allocation of medical supplies to the civilian population,' and care and evacuation of wounded civilians.

8.     
AdjutCllnt general. Distribution of routine orders, classification, reclassification, as­signment, promotion, transfer, replacement, discharge, decoration, citations, honors, awards, leaves of absence, and furlough. Supply of publications and operation of office procedure.

9.     
Judge advocate. Review of the records of the trials of civilians by military commissions and special military government courts.


1,0.     Quartermaster. Distribution of quartermas­ter equipment and supplies. Allocation, storing, and distribution of food and quartermaster supplies for the use of civilians.
762054°--47----5
11.     
Transportation. Use of transportation facil­ities by CAjMG personnel which is not organic equipment. ,

12.
Public relations.     Press, radio, motion pic­ture, and similar releases.


(2) Personal relations. Not only is it necessary for CAjMG personnel to know the functions of the various sections of the general and special staffs and the techni­cal services, but it is desirable that they cultivate cordial personal relations with the officers thereof. Teamwork between staff sections and services is essential. It is assured not only by staff conferences but by individual personal contact.


SECTION III
ORGANIZATION AND OPERATIONS

13. GENERAL. a. In operations carried out by the comlDined forces of the United Stares and its Allies, the formulation of policies and plans for CA/MG is exer­cised under the direction of the governments concerned.
b.
In operations conducted jointly by the United States Army and ~avy, the planning and formulation of policies for CA/MG is carried out under the direc­tion of the Joint Chiefs of Staff.

c.
Responsibility for Army or N ayy CAjMG opera­tions is vested in and exercised by the commanding offi­cer in a theater of operations.


14. DEPARTMENTS OF THE ARMY AND NAVY AND STATE DEPARTMENT ORGANIZATION. The military agencies designated by the Secretaries of the Army and the Navy to formulate CA/MG policies and plans are the Civil Affairs Division of the Department of the Army and the Office of Island Governments and the Office of Politico Military Affairs of the Department of the Navy. The civilian agency designated my the Secretary of State to formulate CA/MG policies is the Office of Occupied Areas of the Department of State.
a. Department of the Army organization. The Civil Affairs Division, Department of the Army Special Staff, is responsible for formulating policy, preparing plans, and taking action on CA/MG matters, including war crimes; and for insuring that the Secretary of the Army, the Chief of Staff, and interested divisions of the De­partment of the Army are pro12erly and promptly ad­vised on these matters. In addition, the Civil Affairs Division, in coordination with other Department of the Army agencies or agencies of the Government and inter­national or voluntary relief and welfare organizations, is responsible for­
(1)
Formulating policy and preparing plans for the conduct of CAjMG'activities.

(2)
Expediting handling within the Department of the Army of theater CAjMG problems in occupied areas.

(3)
Collecting and distributing CA/MG information to appropriate agencies of the Government.

(4)
Providing representation on the­

(a)
Joint Civil Affairs Committee of JCS.

(b)
Combined Civil Affairs Committee of CCS.

(
c) European and Far Eastern Subcommittees of SANACC.

(5)
Providing advice, guidance and assistance to the United States Representatives on FEC.

(6)
Formulating broad plans and policies for train­ing CA/MG personnel, both military and civilian, and preparing informational documents, manuals, etc., to be used in the instruction and training of all personnel on the subject of CA/MG policies and procedure.

b.
Department of the Navy organization. The Office of Island Governments and the Office of Politico Mili­tary Affairs divisions of the Office of the Chief of Naval Operations are responsible for formulating broad policies and plans, drafting basic directives and regu­lations, and training personnel for CA/MG in areas


of paramount naval interest. They are also responsible for coordinating with the Department of the Army on matters of joint CAjMG interests. In addition, it in­sures that the Secretary of the Navy, the Chief of Naval Operations, Theater Commanders, interested bureaus, and other divisions of the Department of the Navy are properly and promptly advised with respect to these matters. The Office of the Island Governments and the Office of Politico Military Affairs maintains liaison for the Department of the Navy with other agencies of the government and civilian welfare or relief organiza­tions and, in connection therewith, is responsible for­
(1)
Formulating policy and preparing plans for the conduct of CAjMG activities.

(2)
Expediting the handling within the Department of the Navy of CAjMG matters.

(3)
Collecting and distributing CAjMG information to appropriate agencies.

c.
Department of State organization. The Assistant Secretary of State for Occupied Areas is directly responsible to the Secretary of State for the coordina­tion of State Department policy with respect to all occupation matters. He shall­

(1)
Be the State Department member of the State-Army-Navy-Air Force Coordinating Committee (SANACC) on all matters of occupation policy.

(2)
Refer to SANACC, or to any appropriate sub­committee thereof, such policy matters as may require concerted study, consideration, or action.


15. ORGANIZATION AND CONTROL IN THEATERS OF OPERATION. a. Organization. (1) In theaters of op­eration the composition of the staff organization for
CA/MG planning, operation, and control will provide for the carrying out of the normal functions of CA/MG as outlined in paragraph 12. ,
(2)
The size, organization, and scope of the activities of a given staff in an occupied area will be determined by certain factors, including the mission of the com­mander, the structure and condition of the government existing in the area, the character and attitude of the people and officials of such government, and the geo­graphic, economic, and social" aspects of the area.

(3)
CA/MG staff functions are performed at all levels of command in theaters of operation. Within all echelons of command down to and including divisions there will be a staff section, which will be on a general staff level, to perform these functions. There may be a military situation not requiring the performance of CA/MG functions as far down as the division level. The various administrative and technical services will be required to extend their functions to include support of CA/MG activities.


b. Control. (1) Duringoombatphase. (See fig. 1).
(a)
During the period the theater is divided into a combat zone and a communications or naval advanced base zone, the theater commander exercises control over the combat zone through the commanding officers of field armies or naval fleet or task force commanders, and over the communications or naval advanced base zone through its commanding officer.

(b)
If, however, the theater is subdivided into zones of operation assigned to separate task forces, each of which has its own communications or naval advanced base zone, control is exercised through task force com­mander.s.

(2)
After aotive oombat has oeased. (See fig. 2.) As long as military government continues in the occu­pied area, the theater commander will exercise control through a separate CA/MG command. Only in unusual circumstances will CA/MG be in the tactical chain of command.


16. ORGANIZATION AND CONTROL OF ARMY COM­MUNICATIONS OR NAVAL ADVANCED BASE ZONE. a. Degree of organization. As occupied wrritory comes within the communications zone or the naval advanced base zone, greater attention must be paid to the per­manency of the area organization and further develop­ment of CA/MG organization. Efforts will be made to restore the normal functioning of the local govern­ment subject to CA/MG control at all echelons and to occupational directives.
b. Type of organization. (1) In the communications or naval advanced base zone, considerations of unity of command usually require that the zone and sulvordinate military administrative area commanders be given con­trol of CA/MG within their areas. Tactical command­ers in communication or naval advanced base zones are not responsilvle for CA/MG unless designated as zone commanders.
(2)
If the communications or naval advanced base zone'is not subdivided for purposes of military adminis­tration, the comanding officer of the zone creates a CA/MG command, and designates the chief of the CA/MG section of his staff as CA/MG commander.

(3)
If the communications or naval advanced base zone is subdivided for purposes of military administra­tion, the commanding officer of the zone exerCIses


CA/MG control through his subordinate area com­manders.
(4)
If the occupied territory5ncludes more than one country or island group, a MG unit will be detailed for each of the subdivisions in the highest political echelon. Sufficient personnel will be allotted for duty in the lower political echelons including cities.

(5)
The commander of a combat unit stationed in or passing through a locality in the communications zone will assume no CA/MG functions or authority except in an emergency, and will be guided by the established CA/MG policies and procedures.


17. TYPES OF ORGANIZATION. o. Generally speak­ing, there are two types of CAjMG organizations­combat and occupational. (See figs. 1 and 2.)
(1)
In the combat or wake of battle type, commanders of combat units or of military administrative areas are responsible for CA/MG functions within their respec­tive zones of operation or areas. The channel of com­mand of CA/MG personnel of one echelon to CA/MG personnel of a higher or lower echelon conforms to the operational or administrative chain of command.

(2)
In the occupational form following the combat phase a separate CA/MG organization is created under the direct command of the theater commander or under a subordinate commander. Under this form, the officer in charge of CAjMG of a given territory is responsible to the officer in charge of the next higher political sub­division for CA/MG of the area, and has command of any subordinate CA/MG personnel which may be as­signed to political subdivisions within his territory. The chain of command within the organization is direct


from higher to lower CA/MG personnel. Local CA/MG officers are not responsible to tactical unit commanders stationed in the area with regard to the administration of CA/MG activities, but will report direct to higher CA/MG officers.
(3)
It is a function of command to determine the type of organization to be utilized at any particular time or place. The system adopted may often involve features of each type. In many cases the operation will be progressive and one type of organization will pre­dominate in one portion of a theater while the other type predominates in another portion.

b.
CA/MG begins in the combat zone as soon as the area comes within control of the occupying or liberat­ing force. In active combat areas CA/MG is neces­sarily limited to the most essential functions in conform­ity with the military situation. Such functions are usually directly exercised over the civilian popUlation by the combat units of which MG troops will be a part. The initial handling of civilian problems i:f properly conducted can spell the difference between success or failure of the purely combat mission and may easily set the pattern for effective civilian cooperation. Such


. cooperation,     as the combat zone moves forward and occupation continues, will permit inestimable savings of both men and dollars.
c. In the combat zone, control on the principle of unity of command is paramount. Tactical commanders with the advice of their CA/MG s~aff officers will con­trol the civilian population within the zone of operation without regard to political boundaries. CA/MG units, of the occupational type, brought into the tactical area for the purpose of relieving tactical units of CA/MG responsibility, will be attached to the tactical command and orders concerning the control of CA/MG activities will be issued through the military chain of command, under which procedure operational control of these units may be delegated lily the tactical commander to his chief CA/MG officer. When the division moves forward the occupational type of CA/MG units pass to the control of the commanding officer of the next higher tactical echelon. In the combat zone, reinforcing occupational type MG units are initially attached to divisions.
18. ADVANTAGES AND DISADVANTAGES OF COMBAT AND OCCUPATIONAL TYPES. o. Combat. (1) A~d­
vantages. The advantage of control through combat and military administrative area commanders is that authority for all activities, civil as well as military, is concentrated in the han

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