The title of this volume may not convey the precise scope of its contents but the authors could think of no other that would be more suggestive without being overponderous. Broadly speaking the volume deals with U.S. Army and Anglo-American planning and operations in the sphere of relations with civilians in certain liberated and conquered countries in World War II. Although far more than mere difference in nomenclature was involved, the Army manuals generally referred to occupational operations in liberated countries as civil affairs and to those in conquered countries as military government.1 In both types of occupation the range and complexity of the problems to be dealt with were as great as in the whole scope of modern government. In liberated countries the Army needs and Allied aims could be satisfied largely through existing governmental regulations and personnel, but in enemy countries drastic changes in laws, institutions, and administrators were necessary. Whether old or new governmental machinery was used, civil affairs doctrine emphasized the desirability of indirect control. In spite of this emphasis, in areas of military government Allied officers, whether from necessity or impatience, sometimes performed various governmental functions and in any case closely supervised them. In the liberated areas their intervention was far less direct, but, under the paramount authority residing in the theater commander by either the laws of warfare or by international agreement, they advised or assisted the indigenous authorities. Thus, in various senses and degrees, soldiers became governors.
The long and crowded history of Allied civil affairs activities, like the history of tactical activities, may be divided into the operations that took place before and those that took place after the military drive into the main enemy areas-Germany and Japan. The scope of this volume encompasses only the pre-Germany-Japan phase of the war, in which the Army prepared and organized for its tasks, conducted its first belligerent occupation (in Italy), and carried on the liberating occupations in France and northwest Europe preliminary to invasion of Germany. It was in this phase, in short, that the Army initiated and gained maturity in its civil affairs responsibilities. The omission of Germany and Japan may well disappoint some readers insofar as the operations in those countries were the largest and most consequential of the war. But the basic aims and methods took form in the earlier operations, and the occupation of Germany and Japan, however distinctive in some respects, cannot be adequately understood except in the light of what went on before.
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