In case of a poorly developed or semi-civilized occupied country, and especially one which it is proposed to annex, the problem is somewhat different. Here must be development and education built on a firm foundation. Our military governments in Porto Rico, Cuba and the Philippines were of this kind and the problem was entirely different from that in Vera Cruz and Germany. In the first class the military government gradually passes from military hands into the hand of civil authorities. And once conditions are settled or stabilized, the sooner this happens the better.

When the government has passed to a civil commission, it may happen that the commander of the troops in the occupied territory will still be the civil governor. In the case of half civilized tribes, this is an excellent arrangement. In Mindinao, General Pershing was the commanding general of the department, reporting as such to the Commanding General of the Philippines, and at the same time he was the civil governor, reporting as such to the Philippine Commission.

Earlier in the Philippines there was complete separation of the civil and military functions. The civil functions were exercised by the Philippine Commission. There was more or less friction, owing chiefly to the fact that provinces were placed under the control of the Civil Commission before they were pacified.

Speaking of the administration of enemy territory, Spraight says:

"There is undeniably an art in the governing of an occupied country. Mr. Hilaire Belloc has defined discipline very happily as a mixture of petty tyrannies and good fellowship in equal doses, and an older writer said its object was to make soldiers more afraid of their own officers than of the enemy. And the secret of successful occupation is really the disciplining of the conglomera

tion of more or less disaffected persons who make up the population of an occupied territory."

This view may be the view of Great Britain, but, thank God, it is not of the United States. The American Army has conducted many military governments, but never one founded on "petty tyrannies and good-fellowship."

In any military government there must be punishment, swift and sure, for the wicked and the lawless, and protection, safe and certain, for the lawabiding and the peaceful.

There is "an art in the governing of an occupied country," but that art is founded not on "petty tyrannies and good-fellowship," but on dignity, firmness, justice and honor.

Under this head should be considered the relations of the soldiers to the inhabitants of the country. From the first invasion of Mexico to the occupation of Germany, this has given commanding generals grave concern. General Scott on April 1, 1847, issued the following order:

HEADQUARTERS OF THE ARMY

VERA CRUZ, April 1, 1847.

Notwithstanding the strong provisions of printed General Orders No. 20, proclaiming martial law, many undoubted atrocities have been committed in this neighborhood, by a few worthless soldiers, both regulars and volunteers, which, though stamping dishonor upon the whole army, remain unpunished, because the criminials have not been seized and reported by eye-witnesses of the atrocities.

It must be evident to all who honor their country, or respect themselves, that law and order cannot be maintained in the army, unless every good soldier shall give his personal aid to authority. This was invited and expected, under that printed order, but cruel have been the disappointments of the general-in-chief, and all the good officers and soldiers in this army.

One more appeal is made to the ninety-seven honorable men, against, perhaps, the three miscreants, in every hundred. Certainly, the great mass ought not to allow themselves to be dishonored by a handful of scoundrels, who scout all religion, moral law, and decency. Therefore, let every bad man be denounced in his act of guilt, seized and reported for trial, and this army will march in triumph, and be everywhere kindly received, and supplied with necessaries and comforts by the peaceful, and unoffending inhabitants of the country.

As one preventive to outrage, and all officers will seek to apply others, no man will be allowed to stray from his camp, or post, in future, without a written permission, and no such permission will be given to any soldier not known to be sober and orderly in his conduct. This restriction upon the good, is the first evil brought upon them by undetected criminals.

All killing of cattle, even for food, and all seizing upon poultry, vegetables, and other private property, even during the pretense of supplying the sick, must instantly cease, except by express order of some officer of high rank. Arrangements have been made to supply the army and its hospitals by purchase, and individual officers or soldiers must, each, purchase for himself, fairly and honestly, as at home, all comforts not supplied by government.

BY COMMAND OF MAJOR GENERAL SCOTT:

H. L. SCOTT,

A. A. A. General.

One of the best orders on this subject is General Pershing's order, now known as the anti-fraternization order. Ie reads:

AMERICAN EXPEDITIONARY FORCES

GENERAL ORDERS
No. 218.

FRANCE, November 28, 1918.

In view of the extraordinary conditions under which that part of the American Expeditionary Forces which constitutes the Army of Occupation of German territory is serving, the commander-in-chief desires to acquaint the officers and men composing it with the expectation which he entertains as to their conduct. You have come not at despoilers or oppressors, but simply as the instruments of a strong, free government whose purposes towards the people of Germany are beneficent. During our occupation the civil population is under the special safeguard of the faith and honor of the American Army.

It is, therefore, the intention of this order to appeal directly to your pride in your position as representatives of a powerful but righteous nation, with the firm conviction that you will so conduct yourself in your relations with the inhabitants of Germany as will cause them to respect you and the country you have the honor to represent. While you appear among them as a conquering army, you will exhibit no ill will towards the inhabitants.

On the other hand you are warned against conduct unbecoming your position as instruments of military rule. So long as a state of war continues, Germany remains enemy territory, and there must be no intimate personal association with its inhabitants. A dignified and reserved attitude will be maintained on your part at all times.

It is not believed that any acts of pillage or violence will be committed by members of the American forces, but, should any persons prove themselves unworthy of this confidence, their acts will be considered not only as crimes against the sufferers, but as dishonoring the American Army and as a direct insult to the flag of the United States. Such transgressions, should they occur, will be punished with the severest penalties known to our military law.

BY COMMAND OF GENERAL PERSHING:

OFFICIAL:

JAMES W. McANDREW,

Chief of Staff.

ROBERT C. DAVIS,

Adjutant General.

Another rule of administration is, do not make promises which may embarrass you or your successor later, and do not enter into agreements with officials of the country occupied. Baron von Bissing without doubt rued the day that he entered into a written controversial duel with Cardinal Mercier. The old soldier was no match for the able Cardinal, who led him into pitfall after pitfall. (See the chapter on Documents in Evidence, Belgium, Vol. II, p. 491.) It is much better to avoid any and all discussions with the people of the occupied country and, above all, to make no promises. In dealing with the people or their leaders, follow the Biblical advice and let your communications be "yea, yea, and "nay, nay."

Many times did the written statements of Baron von der Goltz, that "young men, and with greater reason, men who have reached an advanced age, will not be at any moment of the occupation either made prisoners or employed at forced labor," return to plague Baron von Bissing. The old Baron had an impossible task in attempting to justify the deportation of Belgians, but it was made doubly irritating by the written promises of his predecessors.

Avoid in any military government doing anything which may bring ridicule upon the government. And again this is often not so much a question of what we do, as how we do it. Take, for example, the question of the time. In our occupation of Germany the official time was changed by the following order.

"24. Time will be changed from German to International time at midnight, December 14-15. At that time all clocks will be set back one hour."

This was a poorly written order; I wrote it, so feel at perfect liberty to criticise it freely. It should have read: "All official clocks will be set back one hour." It was intended to apply to railroads, telegraph offices, American troops, the enforcement of liquor laws, etc. Due to the good sense of the American officers, no attempt was made to enforce this upon the inhabitants in their private capacities. No one cared if their private clocks were one hour fast or an hour slow. Finding it inconvenient to have two times, the inhabitants accepted the change generally and without comment.

The Germans entered Belgium in August, 1914, and at once changed the official time to German time. On the 6th of November, 1914, Baron von Luttwitz. the Governor General of Brussels, issued the following order: