Front Page Titles (by Subject) CHAPTER XXVI: ARMING THE NATION - On War, vol. 2
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CHAPTER XXVI: ARMING THE NATION - Carl von Clausewitz, On War, vol. 2 
On War, trans. Col. J.J. Graham. New and Revised edition with Introduction and Notes by Col. F.N. Maude, in Three Volumes (London: Kegan Paul, Trench, Trubner & C., 1918). Vol. 2.
Part of: On War
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ARMING THE NATION
A people’s War in civilised Europe is a phenomenon of the nineteenth century. It has its advocates and its opponents: the latter either considering it in a political sense as a revolutionary means, a state of anarchy declared lawful, which is as dangerous as a foreign enemy to social order at home; or on military grounds, conceiving that the result is not commensurate with the expenditure of the nation’s strength. The first point does not concern us here, for we look upon a people’s War merely as a means of fighting, therefore, in its connection with the enemy; but with regard to the latter point, we must observe that a people’s War in general is to be regarded as a consequence of the outburst which the military element in our day has made through its old formal limits; as an expansion and strengthening of the whole fermentation-process which we call War. The requisition system, the immense increase in the size of Armies by means of that system, and the general liability to military service, the employment of militia, are all things which lie in the same direction, if we make the limited military system of former days our starting-point; and the levée en masse, or arming of the people, now lies also in the same direction. If the first named of these new aids to War are the natural and necessary consequences of barriers thrown down; and if they have so enormously increased the power of those who first used them, that the enemy has been carried along in the current, and obliged to adopt them likewise, this will be the case also with people-Wars. In the generality of cases, the people who make judicious use of this means, will gain a proportionate superiority over those who despise its use. If this be so, then the only question is whether this modern intensification of the military element is, upon the whole, salutary for the interests of humanity or otherwise,—a question which it would be about as easy to answer as the question of War itself—we leave both to philosophers. But the opinion may be advanced, that the resources swallowed up in people’s Wars might be more profitably employed, if used in providing other military means; no very deep investigation, however, is necessary to be convinced that these resources are for the most part not disposable, and cannot be utilized in an arbitrary manner at pleasure. One essential part, that is the moral element, is not called into existence until this kind of employment for it arises.
We therefore do not ask again: how much does the resistance which the whole Nation in Arms is capable of making, cost that Nation? but we ask: what is the effect which such a resistance can produce? What are its conditions, and how is it to be used?
It follows from the very nature of the thing that defensive means thus widely dispersed, are not suited to great blows requiring concentrated action in time and space. Its operation, like the process of evaporation in physical nature, is according to the surface. The greater that surface and the greater the contact with the enemy’s Army, consequently the more that Army spreads itself out, so much the greater will be the effects of arming the Nation. Like a slow gradual heat, it destroys the foundations of the enemy’s Army. As it requires time to produce its effects, therefore whilst the hostile elements are working on each other, there is a state of tension which either gradually wears out if the people’s War is extinguished at some points, and burns slowly away at others, or leads to a crisis, if the flames of this general conflagration envelop the enemy’s Army, and compel it to evacuate the country to save itself from utter destruction. In order that this result should be produced by a national War alone, we must suppose either a surface-extent of the dominions invaded, exceeding that of any country in Europe, except Russia, or suppose a disproportion between the strength of the invading Army and the extent of the country, such as never occurs in reality. Therefore, to avoid following a phantom, we must imagine a people-War always in combination, with a War carried on by a regular Army, and both carried on according to a plan embracing the operations of the whole.
The conditions under which alone the people’s War can become effective are the following—
1. That the War is carried on in the heart of the country.
2. That it cannot be decided by a single catastrophe.
3. That the theatre of War embraces a considerable extent of country.
4. That the national character is favourable to the measure.
5. That the country is of a broken and difficult nature, either from being mountainous, or by reason of woods and marshes, or from the peculiar mode of cultivation in use.
Whether the population is dense or otherwise, is of little consequence, as there is less likelihood of a want of men than of anything else. Whether the inhabitants are rich or poor is also a point by no means decisive, at least it should not be; but it must be admitted that a poor population accustomed to hard work and privations usually shows itself more vigorous and better suited for War.
One peculiarity of country which greatly favours the action of War carried on by the people, is the scattered sites of the dwellings of the country people, such as is to be found in many parts of Germany. The country is thus more intersected and covered; the roads are worse, although more numerous; the lodgement of troops is attended with endless difficulties, but especially that peculiarity repeats itself on a small scale, which a people-War possesses on a great scale, namely, that the principle of resistance exists everywhere, but is nowhere tangible. If the inhabitants are collected in villages, the most troublesome have troops quartered on them, or they are plundered as a punishment, and their houses burnt, &c., a system which could not be very easily carried out with a peasant community of Westphalia.
National levies and armed peasantry cannot and should not be employed against the main body of the enemy’s Army, or even against any considerable detachment of the same, they must not attempt to crack the nut, they must only gnaw on the surface and the borders. They should rise in the provinces situated at one of the sides of the theatre of War, and in which the assailant does not appear in force, in order to withdraw these provinces entirely from his influence. Where no enemy is to be found, there is no want of courage to oppose him, and at the example thus given, the mass of the neighbouring population gradually takes fire. Thus the fire spreads as it does in heather, and reaching at last that part of the surface of the soil on which the aggressor is based, it seizes his lines of communication and preys upon the vital thread by which his existence is supported. For although we entertain no exaggerated ideas of the omnipotence of a people’s War, such as that it is an inexhaustible, unconquerable element, over which the mere force of an Army has as little control as the human will has over the wind or the rain; in short, although our opinion is not founded on flowery ephemeral literature, still we must admit that armed peasants are not to be driven before us in the same way as a body of soldiers who keep together like a herd of cattle, and usually follow their noses. Armed peasants, on the contrary, when broken, disperse in all directions, for which no formal plan is required; through this circumstance, the march of every small body of troops in a mountainous, thickly wooded, or even broken country, becomes a service of a very dangerous character, for at any moment a combat may arise on the march; if in point of fact no armed bodies have even been seen for some time, yet the same peasants already driven off by the head of a column, may at any hour make their appearance in its rear. If it is an object to destroy roads or to block up a defile; the means which outposts or detachments from an Army can apply to that purpose, bear about the same relation to those furnished by a body of insurgent peasants, as the action of an automaton does to that of a human being. The enemy has no other means to oppose to the action of national levies except that of detaching numerous parties to furnish escorts for convoys, to occupy military stations, defiles, bridges, &c. In proportion as the first efforts of the national levies are small, so the detachments sent out will be weak in numbers, from the repugnance to a great dispersion of forces; it is on these weak bodies that the fire of the national War usually first properly kindles itself, they are overpowered by numbers at some points, courage rises, the love of fighting gains strength, and the intensity of this struggle increases until the crisis approaches which is to decide the issue.
According to our idea of a people’s War, it should, like a kind of nebulous vapoury essence, never condense into a solid body; otherwise the enemy sends an adequate force against this core, crushes it, and makes a great many prisoners; their courage sinks; every one thinks the main question is decided, any further effort useless, and the arms fall from the hands of the people. Still, however, on the other hand, it is necessary that this mist should collect at some points into denser masses, and form threatening clouds from which now and again a formidable flash of lightning may burst forth. These points are chiefly on the flanks of the enemy’s theatre of War, as already observed. There the armament of the people should be organised into greater and more systematic bodies, supported by a small force of regular troops, so as to give it the appearance of a regular force and fit it to venture upon enterprises on a larger scale. From these points, the irregular character in the organisation of these bodies should diminish in proportion as they are to be employed more in the direction of the rear of the enemy, where he is exposed to their hardest blows. These better organised masses, are for the purpose of falling upon the larger garrisons which the enemy leaves behind him. Besides, they serve to create a feeling of uneasiness and dread, and increase the moral impression of the whole, without them the total action would be wanting in force, and the situation of the enemy upon the whole would not be made sufficiently uncomfortable.
The easiest way for a General to produce this more effective form of a national armament, is to support the movement by small detachments sent from the Army. Without the support of a few regular troops as an encouragement, the inhabitants generally want an impulse, and the confidence to take up arms. The stronger these detachments are, the greater will be their power of attraction, the greater will be the avalanche which is to fall down. But this has its limits; partly, first, because it would be detrimental to the Army to cut it up into detachments, for this secondary object, to dissolve it, as it were, into a body of irregulars, and form with it in all directions a weak defensive line, by which we may be sure both the regular Army and national levies alike would become completely ruined; secondly, partly because experience seems to tell us that when there are too many regular troops in a district, the people’s War loses in vigour and efficacy; the causes of this are in the first place, that too many of the enemy’s troops are thus drawn into the district, and, in the second place, that the inhabitants then rely on their own regular troops, and, thirdly, because the presence of such large bodies of troops makes too great demands on the powers of the people in other ways, that is, in providing quarters, transport, contributions, &c., &c.
Another means of preventing any serious reaction on the part of the enemy against this popular movement constitutes, at the same time, a leading principle in the method of using such levies; this is, that as a rule, with this great strategic means of defence, a tactical defence should seldom or ever take place. The character of a combat with national levies is the same as that of all combats of masses of troops of an inferior quality, great impetuosity and fiery ardour at the commencement, but little coolness or tenacity if the combat is prolonged. Further, the defeat and dispersion of a body of national levies is of no material consequence, as they lay their account with that, but a body of this description must not be broken up by losses in killed, wounded, and prisoners; a defeat of that kind would soon cool their ardour. But both these peculiarities are entirely opposed to the nature of a tactical defensive. In the defensive combat a persistent slow systematic action is required, and great risks must be run; a mere attempt, from which we can desist as soon as we please, can never lead to results in the defensive. If, therefore, the national levies are entrusted with the defence of any particular portion of territory, care must be taken that the measure does not lead to a regular great defensive combat; for if the circumstances were ever so favourable to them, they would be sure to be defeated. They may, and should, therefore, defend the approaches to mountains, dykes, over marshes, river-passages, as long as possible; but when once they are broken, they should rather disperse, and continue their defence by sudden attacks, than concentrate and allow themselves to be shut up in some narrow last refuge in a regular defensive position.—However brave a nation may be, however warlike its habits, however intense its hatred of the enemy, however favourable the nature of the country, it is an undeniable fact that a people’s War cannot be kept up in an atmosphere too full of danger. If, therefore, its combustible material is to be fanned by any means into a considerable flame it must be at remote points where there is more air, and where it cannot be extinguished by one great blow.
After these reflections, which are more of the nature of subjective impressions than an objective analysis, because the subject is one as yet of rare occurrence generally, and has been but imperfectly treated of by those who have had actual experience for any length of time, we have only to add that the strategic plan of defence can include in itself the co-operation of a general arming of the people in two different ways, that is, either as a last resource after a lost battle, or as a natural assistance before a decisive battle has been fought. The latter case supposes a retreat into the interior of the country, and that indirect kind of reaction of which we have treated in the eighth and twenty-fourth chapters of this book. We have, therefore, here only to say a few words on the mission of the national levies after a battle has been lost.
No State should believe its fate, that is, its entire existence, to be dependent upon one battle, let it be even the most decisive. If it is beaten, the calling forth fresh power, and the natural weakening which every offensive undergoes with time, may bring about a turn of fortune, or assistance may come from abroad. No such urgent haste to die is needed yet; and as by instinct the drowning man catches at a straw, so in the natural course of the moral world a people should try the last means of deliverance when it sees itself hurried along to the brink of an abyss.
However small and weak a State may be in comparison to its enemy, if it foregoes a last supreme effort, we must say there is no longer any soul left in it. This does not exclude the possibility of saving itself from complete destruction by the purchase of peace at a sacrifice; but neither does such an aim on its part do away with the utility of fresh measures for defence; they will neither make peace more difficult nor more onerous, but easier and better. They are still more necessary if there is an expectation of assistance from those who are interested in maintaining our political existence. Any Government, therefore, which, after the loss of a great battle, only thinks how it may speedily place the Nation in the lap of peace, and unmanned by the feeling of great hopes disappointed, no longer feels in itself the courage or the desire to stimulate to the utmost every element of force, completely stultifies itself in such case through weakness, and shows itself unworthy of victory, and, perhaps, just on that account, was incapable of gaining one.
However decisive, therefore, the overthrow may be which is experienced by a State, still by a retreat of the Army into the interior, the efficacy of its fortresses and an arming of the people may be brought into use. In connection with this it is advantageous if the flank of the principal theatre of War is fenced in by mountains, or otherwise very difficult tracts of country, which stand forth as bastions, the strategic enfilade of which is to check the enemy’s progress.
If the victorious enemy is engaged in siege works, if he has left strong garrisons behind him everywhere to secure his communications, or detached troops to make himself elbow-room, and to keep the adjacent provinces in subjection, if he is already weakened by his various losses in active means and material of war, then the moment is arrived when the defensive Army should again enter the lists, and by a well-directed blow make the assailant stagger in his disadvantageous position.