OBSERVARE
Universidade Autónoma de Lisboa
e-ISSN: 1647-7251
Vol. 8, Nº. 2 (November 2017-April 2018), pp. 29-37
THE SUBVERSIVE WAR DEALS WITH THE PORTUGUESE STRATEGIC SCHOOL
AND THE PORTUGUESE EXPERIENCE IN THE AFRICAN COLONIAL WARS
António Horta Fernandes
ahf@fcsh.unl.pt
Lecturer at the Department of Political Studies of the Faculty of Social and Human Sciences,
Universidade Nova de Lisboa (Portugal).
Abstract
Subversive war has returned to have increased importance in different international scenarios
in which major Western powers are involved. These complex scenarios, in some cases even
insurgency and counter-insurgency phenomena, were joined by a very different phenomenon:
terrorism. Therefore, and given the conceptual confusion and baneful practical consequences
of a misevaluation of what a subversive war and concomitant strategies mean, it is imperative
to revisit through the doctrine of the Portuguese School of Strategy and the Portuguese
experience in the field, as they configure, even today, judicious axes to understand the nature
of the typology of the conflict in question.
Keywords
Strategy; War; Subversion; Counter-subversion; Portugal
How to cite this article
Fernandes, António Horta (2017). "The subversive war deals with the Portuguese Strategic
School and the Portuguese experience in the African colonial wars". JANUS.NET e-journal of
International Relations, Vol. 8, Nº. 2, November 2017-April 2018. Consulted [online] on the
date of last consultation, DOI: https://doi.org/10.26619/1647-7251.8.2.3
Article received on April 26, 2017 and accepted for publication on June 30, 2017
JANUS.NET, e-journal of International Relations
e-ISSN: 1647-7251
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The subversive war deals with the Portuguese Strategic School and the Portuguese experience in
the African colonial wars
António Horta Fernandes
30
THE SUBVERSIVE WAR DEALS WITH THE PORTUGUESE STRATEGIC SCHOOL
AND THE PORTUGUESE EXPERIENCE IN THE AFRICAN COLONIAL WARS
1
António Horta Fernandes
Reflection on subversive war already has a tradition based in Portugal dating back to the
colonial war period, in the sixties of the twentieth century (Fernandes, 2004). After the
wars of emancipation of the former European colonies in Africa and Asia, the typology of
the subversive wars slept until it was reborn in force in some military campaigns post-11
September 2001. However, its rebirth seems to have been accompanied by a certain, if
not a conceptual, confusion. There has been talk of hybrid wars (Kilcullen, 2009), wars
of chaos (Telo and Pires, 2013), multi-generational wars (Kaldor, 2012 a new edition
where he responds to his critics) and subversive with terrorism (Reis, 2016a).
2
And in all
these cases, somehow, the doctrine already grounded decades ago had been forgot. It
would be normal for many non-Portuguese authors to disregard the conceptualisation of
polemologists and strategists of a small power. It is no longer customary that some
recent Portuguese authors do not use this Portuguese doctrine as a reference, not for
any kind of tardy nationalism, but simply because this doctrine, along with the old French
doctrine, is still what has evolved to understand the phenomenon of war of subversion
and concomitant actions of counter-subversion, or insurrectionary wars, avoiding any
serious conceptual setbacks. The greatest of these is the importance attached to the
military in combating insurgents and the separation of military operations from counter-
forces and from stabilisation as opposed to reconstruction operations, as if they were two
completely different phases of the war, operating with strategies that as well are
heterogeneous; the first military, the second predominantly civil, yet performed in a
conflict environment. Behind such a misunderstanding of the subversive war seems to
be a old-fashioned vision, according to which strategy is something like the military ram
of a political actor’s power with collective expression, or as a method of organisation and
application of power, implying nowadays other valences besides the military, but that
lately is affected by the putative capacity of the use of military force. Thus, post-
stabilisation phases of conflicts would be in some way post-conflict phases or residual
conflict and, in a way, post-strategic (Fernandes, 2014).
However, rationalists of this sort are unaware of the nature of contemporary strategy
and warfare, a test of non-military force, manifestations of hostile conflict that are not
yet war (neither cold nor hot war), the prevalence of strategy in all azimuths and all time.
1
The translation of this article was funded by national funds through FCT - Fundação para a Ciência e
a Tecnologia - as part of OBSERVARE project with the reference UID/CPO/04155/2013, with the aim of
publishing Janus.net. Text translated by Thomas Rickard.
2
António Horta Fernandes refuted (2016) an article by Bruno Cardoso Reis, who then replied (Reis, 2016b).
In turn, António Horta Fernandes responded (Fernandes, 2017). For a critical perspective on the relationship
between war and strategy and terrorism, see (Fernandes, 2010).
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31
The result has not always been the best, increasing, rather than decreasing, the entropy
of the international scene, as shown by the cases of Iraq or Afghanistan. It is then
necessary, once again, to focus on the essence of the meaning of subversive warfare.
1. The Nature of Subversive War
First, and since the article will focus on subversive war and the concomitant strategy of
subversion and counter-subversion, it becomes necessary to know the phenomenon of
subversive warfare. Subversive warfare can be defined as:
The struggle within a given territory, by a part of its inhabitants,
assisted and reinforced or not from abroad, against established or
de facto authorities with the aim of withdrawing control of that
territory or, at least, of paralysing its action (O Exército na Guerra
Subversiva, 1966: Chap. I, p. 1).
3
In addition to the definition, it is still important to point out that, as a form of internal
war, in theory supported or not abroad (a practice that has always been supported from
the outside), subversive war evolved into a generic typology of war, a result of the
strategic avatars of the Cold War. That is to say, in view of the impossibility of the global
superpowers to use armed force against each other, because of the risk of a cataclysmic
nuclear war, they had to develop alternative forms of warfare, which were in fact already
in nuce. This development was essential for the creation of subversive war, since in it
the fulcrum of the action does not become armed struggle.
In fact, we are talking about the creation of subversive war because the so-called small
wars, irregular wars, popular wars and the struggles of different resistances during the
Second World War were nothing but prolegomena to subversive war itself. On the other
hand, so-called guerrilla warfare is only a combat method, based on small groups,
ambushes, counter-ambushes, scourging and quick withdrawals, in short, intermittent
contact, which was and is used in different types of war, including conventional warfare.
What happens is that the subversive movements, in initial stages, had no armed capacity
to do anything but guerrilla warfare; and of course, counter-subversion, if intelligent,
which is confronted with the need to respond in the same measure.
The subversive fulcrum is not in armed struggle, it does not consist of defeating the
military forces of subversion or counter-subversion; although, as war generated from an
internal movement, its trigger must always be armed struggle, under penalty of
subversives soon to be arrested, dominated by police forces and subject to the legal-
constitutional framework in force for common times. Thus, both subversion and counter-
subversion seek to win over the hearts and minds of the majority of the population where
the revolt occurred. If it is possible, convince the direct military adversaries that the
struggle does not make sense, incidentally but firmly, leading to the adverse forces being
militarily comprised. In addition, it is essential to the diplomatic manoeuvring on the
international stage, psycho-social, sanitation, developmental support, that is a set of
3
There are in Portuguese strategic doctrine small differences between subversive war and insurrectionary
war, which, for the purposes of this article, will be left aside.
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manoeuvres corresponding to general economic, communicational, psychological and
cultural strategies that supports the military efforts. This comprehensive approach cannot
be posterior to military combat, offensive and defensive operations, or subsequent
stabilisation operations. The effort is a continuum where from the beginning, what we
could designate as state-building responds to the yearnings and complaints that
generated the revolt, is the main objective.
Through this theoretical framework one can better perceive what distinguishes
subversive war from its historical embryos. What historically characterised the earlier
proto-subversive actions, not least because war had not detached itself from the almost
exclusive monopoly of armed struggle and military strategy, was the predominance of
military vectors. The aim of these actions was to defeat or paralyse government military
manoeuvres by means of an armed uprising of a fringe of a population, generally using
irregular warfare. As one can see, this is not the aim of a subversive war. Take, the
Second World War, for example, where the aim was not to win over the population
through competing forces, but rather to resist the Germans through irregular operations,
in order to inflict physical and moral damage on the occupants. In this way, it seeks to
supplement the decisive, conventional axis of the manoeuvre carried out by the allied
forces.
At heart, subversive war takes advantage of the elements thrown by total war, which
extends the concept of war to other spheres other than the military.
4
In practice,
however, during the period of total war between the end of the Great War and the end
of World War II, there was in fact a general but almost exclusive mobilisation in support
of the military apparatus, which was the cause of this mobilisation. Only the duress of
the atomic age and a greater acquaintance with the other modalities of war and strategy
allowed the development of a war in all azimuths, including a war in which the central
axis was not to defeat the adversary militarily.
However, caution must be exercised in this war on all azimuths. Because subversive war,
although it has often descended into a kind of total war, a priori makes a reading of
reality opposed to that of total war. Let us remember that total war is the utilisation, with
maximum intensity, without temperance and simultaneously, of all the instruments at
the disposal of a political actor. Total war reverses the strategic pyramid and virtually
reduces the overall political objectives of a political entity to those related to hostility,
those that fall under the purview of strategy (for example, the goal of unconditional
surrender of the allied powers in the Second War). The post-war environment is very
different: strategy regains its subordinate position in relation to politics, and from then
on, it does not go back on the possibility of using all means. It is important to use these
means in a balanced way, in accordance with the overall political objectives and not only
with strictly strategic objectives, if not only according to the strategic objectives of the
theatre at a given moment.
4
The concept of total war was introduced by the French politician and journalist Léon Daudet in 1918 and
then was substantially developed and popularised by the German general Erich Ludendorff in 1935 in the
work The Total War (Der Totale Krieg). Daudet defines total war as the "extension of the struggle in its
most acute and chronic phases to political, economic, commercial, industrial, intellectual, legal and financial
domains. It is not only the armies that clash, but traditions, customs, codes, spirits and especially the
banks" (Daudet, 1918: 8). Ludendorff, on the other hand, refers to total warfare against the total and
omnipresent reality of the relationship between states, concerning the struggle for the preservation of life
(of a whole, of course) of a people (Ludendorff 1937: 22 et seq.).
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It is necessary, however, to summarise the reasons why subversive war tends, during
the Cold War (and continues to be), to descend into a total war; although this did not
happen in the Portuguese colonial wars, and in particular for the Portuguese forces. The
fact is that for a subversive strategy there were no fronts or rear lines and space had
been greatly distended; on the limit, it could reach immense portions of the whole globe.
Bringing war to the heart of the enemy was now to cause it to break, not by
bombardment, but by highly subtle ways that would hardly allow the courage of the
desperation that characterised the reaction to the bombing of cities during the Second
World War. It was to lead the enemy to conclude that even the closest, including
neighbours, friends and relatives, could not be with the enemy. But to simply depart was
not easy either, since subversive war was equally played on the international scene, in
international public opinion, and it might appear that under certain particularly negative
conditions those who were not subversive in the distance were by no means judged with
favour by new communities where they were trying to settle.
"With the designs of large-scale global subversion, one can
understand the power of attraction, but also of repulsion and
psychotic behaviour that such objectives and behaviours can
originate" (Fernandes, 2007: 34).
The quotation reflects the historical association of subversive war to revolutionary war
during the Cold War, but only subversive war itself was capable of originating such
pathologies in the psycho-social domain. One cannot forget that subversive war tends to
be a long-term war of saturation, because subversion cannot altogether defy counter-
subversion in a classic confrontation in the initial stages of the conflict, and the population
does not win in a flash.
5
The great manoeuvre of the lassitude of subversion propitiates, which indeed has come
to occur many times, is, as we have said, an extension of hostilities that surreptitiously
introduces the vices of total war. If we note the duration that the war lasts, and if we
read the conflict as a long-lasting snapshot, a perfectly legitimate reading of the inertial
haemorrhage that counter-lassitude failed to stave off, or could only cut through, without
breaking all structural ties and various temporal sequences, we are faced with
simultaneous action of all forms of coercion, of all the general strategies available through
integral strategy with maximum intensity. It is that the internal logic of the conflict itself,
if it continues, must also be read in this way. The lassitude and the drag of time only
materialise in success precisely in the condition of a unit of time.
5
The five stages or phases of the evolution of subversive action generally pointed out by the doctrine are as
follows: 1st phase subversion preparation; 2nd phase creation of the subversive environment, a phase
of agitation; 3rd phase preparation and consolidation of subversive organisation, corresponding to the
phase of surprise attacks, attacks and other guerrilla actions; 4th phase creation of bases and pseudo-
regular forces, a phase where there are areas that subversion controls by setting up a parallel state; 5th
phase general uprising, the final phase of a classic clash between forces (as happened in 1975 in Vietnam).
Obviously, it will be easier for counter-subversion to combat subversion by containing it at its earliest stages
(O Exército na Guerra Subversiva, 1966: chap. I, p. 12).
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2. The Portuguese case a brief summary
In the Portuguese case, during the years of colonial wars in Africa (1961-1975), Portugal
seems to have had an exemplary strategy of counter-subversion, not only from the point
of view of its conceptual framework the manual, O Exército na Guerra Subversiva (The
Army in Subversive War), is probably the doctrinal document we know best done about
subversive warfare and the best way to fight it as well as on the ground. Subversive
warfare operations in eastern Angola between 1967-1968 and 1973 are likely to use the
differences between subversive movements (FBL-UPA, MPLA, UNITA) for their own
benefit, manoeuvring to dictate the complex chess game, including the geopolitics of
neighbouring states (use of Catangueses) and Zambians), which are the most modest
ever implemented in the context of counter-subversion. Of course, there were limitations,
such as an over-commitment of military forces in the so-called grid a territorial
coverage consisting of its division into zones of action and responsibility assigned to
military units to control the terrain and populations to security, replenishment,
transport and maintenance of controlled areas, as well as (predominantly) carrying out
psycho-social support actions, leaving little scope for effective action against insurgent
forces (taking the creation of a reserve of intervention units released from that burden).
However, the grid was essential to ensure the success of the struggle, being not the
military defeat of the insurgents, but the conquest of the population, which would deny
it the necessary logistical support and sources of recruitment. To dry and not necessarily
to eliminate the enemy by means of its isolation was a fundamental, and much more
effective, and with less destructive effects (collateral damage), as in Vietnam, so that
the doctrine itself foresaw that even for the military forces the priority objective was the
population, not the enemy itself (O Exército na Guerra Subversiva, 1966: chap. II, 4-5).
6
In this way, not only did the populations win, but, dialectically, subversion lost strength,
faster than being only or mostly devastated by counter-guerrilla operations, if not by
more far-reaching operations, since counter-guerrilla operations, although of counter-
lassitude, are also wear-and-tear operations that require a long time; by their very nature
the results are hardly structurally and strategically concentrated. Nonetheless, more men
could have been mobilised for combat operations if there were enough civilian to replace
them in some of the basic security or promotion activities within the territory.
Unfortunately, this was not the case, because the greatest investment in the African
6
Where it is said that the military forces should represent only a small part of the means to be employed. In
this field, the Portuguese military forces have always had to supply in excess the recurrent lack of civilian
technicians. However, the manual also adds that in a strictly military context the armed forces should not
be restricted to actions against the fighting forces of the population, but should collaborate in the struggle
in other fields, even in the more advanced phrases of subversion. Moreover, when the military counter-
subversion missions are detailed, the drafters of the manual conclude that missions whose effect is to
conserve or regain the support of populations, that is psycho-social actions, may be of greater importance.
They recognise that when a phase of implementation and consolidation of armed struggle is reached, the
most important task of the armed forces is to combat the rebel forces. Nevertheless, they conclude by
saying that "experience always demonstrates that the most effective measure to combat armed and
guerrilla bands is to deny them the support of the people (information, food, medicines, recruitment, moral
support, etc.), without which they cannot subsist" (O Exército na Guerra Subversiva, 1966: chap. II, p.24).
Therefore, before even fighting, first and foremost carrying the population itself is at the heart of action
and not fighting insurgents on its own. Or put another way: fighting insurgents is strategically instrumental
and depends on the conquest of the population; combat is useful insofar as it dialectically protects the
population and makes them fall in good graces. While in other types of conflict the fight against the enemy,
the armed adversary, is an end in itself in terms of the military strategy and one of the interactive aims of
the integral strategy to be used by the superior political synthesis.
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colonies comes precisely from the outbreak of colonial war and in response to
emancipation movements. Once again, following in perfection is the doctrinal framework.
It seems that up until now we have only devalued military action, since if it is not the
reason for subversive struggle, it is undeniable that without armed action the capacity
for intimidation and seduction (subversive war articulates coercive actions, with actions
of constraint and even of seduction and acceptance) of the population through subversion
and the concomitant effort of counter-subversion would not progress. This is evident.
However, what is at stake is that in subversive war strategy is more subtle and the use
of military forces in combat actions, although indispensable, must be well considered,
globally contained, taking into account the military strategy as a whole as well as different
strategies, but at the same time resolute and steady when justified; otherwise, it is not
only not remuneratory, but can also lead to the loss of the integral strategic effort and
top political manoeuvres. Portuguese strategic action was generally very successful, as
independent historians prove, like American historian John Cann (1998). The combination
of operational strategy and structural and declaratory strategies was judicious, despite
the relative international isolation of the country, which made a declaratory strategy
proficient with different governments and international public opinion difficult.
7
Nevertheless, in the end, Portugal would lose the war on several fronts: Angola,
Mozambique, Guinea. This includes the most successful theatre of war, that of Angola,
and that of intermediate success, that of Mozambique, as well as relative failure, that of
Guinea. It is difficult, in the international context of that time, that Portugal could
succeed, given the winds of history and the Zeitgeist. In any case, in addition to that, a
policy that was not at the level of the strategy implemented contributed much to defeat.
The particular blindness of the Portuguese political authorities did not allow integration
of the strategic objectives that were being achieved in the basic political synthesis, which
should have been dynamic and non-dogmatic, capable of accommodating strategic
feedbacks. Portuguese policy should have better evaluated the evolution of opinion both
of its own population and of the external board, knowing how to understand the Zeitgeist,
to be able to give autonomy to the colonies in a stronger negotiating position, more
favourable to the European populations in the territory, who had to be repatriated, and
capable of starting a set of relations with the new states without complexes of guilt or
distrust. This would have been useful not only for Portugal's material interests but also
for its prestige and symbolic position in the world and in the future community of
Portuguese-speaking countries.
However, we did not want to end without taking a global, and not only Portuguese,
assessment of the subversive and revolutionary wars that occurred during the Cold War,
almost always associated with decolonisation processes, including, therefore, a mark of
self-determination inherent in a more or less incipient nationalism in African, which was
more robust in Asian cases.
From a technical point of view, the long duration of a subversive war, which is essential
to subversion if it is to succeed, as we alluded to and developed in other places, tends to
7
The four levels or forms of strategy, in the gap between integral strategy (termed the great strategy in
Anglo-Saxon media, with little rigor) and the general strategies are the following, namely: operational
strategy, which concerns the conduct and operation of means; genetic strategy, concerning the generation
and creation of means; structural strategy, responding to the organisation and the articulation of means;
declaratory strategy, having to do with the rhetorical effects of illocutionary acts of an expressive nature in
their relation to the means, naturally in the face of the other, as in a demonstration of forces or to show
the flag.
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call itself the vices of total war and even to approach absolute war. The price to be paid
for this intensity, which is often insidious, of violence, and long term, can be (and has
been) very high. War, as a singular phenomenon, and insofar as it lasts, tends to brutalise
societies due to the habitual absorption of violence. In subversive warfare, the intensity
of material violence is not so obvious, but the usury of time associated with a psycho-
social struggle is; without fronts or rears, institutes of common life are masked by war
and war is hidden in peace, which does not fail to bring about a relative incapacity to
build peace, showing much later the same psychotic behaviours. Moreover, in most cases
we are talking about societies being founded if not created, materially fragile,
institutionally fragile, still fragile in the ties that bind people, especially since we tried to
divide and unite; and in each gesture of community service there seems to have always
been a second intention, although not declared as such. It is clear that the same applies,
albeit in a much less intense way to the social fabric where counter-subversion forces are
based. But it seems clear to us that in this typology of war, frank success can only happen
if counter-subversion immediately stifles subversion, or if, by luck or miracle, the
authorities on the ground find it hard to give up right at the beginning. All else is a limited
success.
Indeed, in the long run, the domain of international relations continued to reside in the
great powers. Its ascendant was never structurally called into question by these small
subversive and revolutionary powers, even when they succeeded and were a stimulus to
others. Faced with the sophistication of insidious war they were developing, they
responded to technologically advanced societies with more sophistication, keeping
ascendant on the international stage, even in the face of recent clamorous defeats such
as Iraq or Afghanistan. The depletion of human and material resources, which was very
significant in the long term, only allowed short Pyrrhus' victories, leaving societies that
embodied this subversion on the verge of exhaustion and in a precarious situation.
8
In addition to the incipient results in comparative terms with respect to the powers with
which the subversive movements were beaten, and which had as a consequence the
maintenance of the ascendant more than a clear control of the international scene on the
part of these same powers, all these subversive wars end up affecting the international
balance, the prestige of the great powers and, consequently, their relative dominance.
That is to say, we should check, regardless of the eventual victories of subversive forces
in the immediate, or of their much more limited success in the medium and long term, if
these struggles have brought substantive changes to the international scene and the
balance of power, though different to what their protagonists thought they had achieved.
I mean, did subversive wars help change the world, yes or no?
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This seems to be the lack of correspondence between the expansion of members of the UN General
Assembly, with decolonisations, as well as their relevance. As decolonisations marked the high moment of
the UN, they also marked their inflection point and downward direction (Mazower, 2017: 305) we handled
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