The foundation for most modern thinking about this topic begins with Mao Zedong’s theorizing about what he called “protracted people’s war” in a work entitled – conveniently enough – On Protracted War (1938), though while the Chinese Communist Party would tend to subsequently represent the ideas there are a singular work of Mao’s genius, in practice he was hardly the sole thinker involved. The reason we start with Mao is that his subsequent success in China (though complicated by other factors) contributed to subsequent movements fighting “wars of national liberation” consciously modeled their efforts off of this theoretical foundation.

The situation for the Chinese Communists in 1938 was a difficult one. The Chinese Red Army has set up a base of power in the early 1930s in Jiangxi province in South-Eastern China, but in 1934 had been forced by Kuomintang Nationalist forces under Chiang Kai-shek to retreat, eventually rebasing over 5,000 miles away (they’re not able to straight-line the march) in Shaanxi in China’s mountainous north in what became known as The Long March. Consequently, no one could be under any illusions of the relative power of the Chiang’s nationalist forces and the Chinese Red Army. And then, to make things worse, in 1937, Japan had invaded China (the Second Sino-Japanese War, which was a major part of WWII), beating back the Nationalist armies which had already shown themselves to be stronger than the Communists. So now Mao has to beat two armies, both of which have shown themselves to be much stronger than he is (though in the immediate term, Mao and Chiang formed a “United Front” against Japan, though tensions remained high and both sides expected to resume hostilities the moment the Japanese threat was gone). Moreover, Mao’s side lacks not only the tools of war, but the industrial capacity to build the tools of war – and the previous century of Chinese history had shown in stark terms how difficult a situation a non-industrial force faced in squaring off against industrial firepower.

That’s the context for the theory.

What Mao observed was that a “war of quick decision” would be one that the Red Army would simply lose. Because he was weaker, there was no way to win fast, so trying to fight a “fast” war would just mean losing. Consequently, a slow war – a protracted war – was necessary. But that imposes problems – in a “war of quick decision” the route to victory was fairly clear: destroy enemy armed forces and seize territory to deny them the resources to raise new forces. Classic Clausewitzian (drink!) stuff. But of course the Red Army couldn’t do that in 1938 (they’d just lose), so they needed to plan another potential route to victory to coordinate their actions. That is, they need a strategic framework – remember that strategy is the level of military analysis where we think about what our end goals should be and what methods we can employ to actually reach those goals (so that we are not just blindly lashing out but in fact making concrete progress towards a desired end-state).

Mao understands this route as consisting of three distinct phases, which he imagines will happen in order as a progression and also consisting of three types of warfare, all of which happen in different degrees and for different purposes in each phase. We can deal with the types of warfare first:

• Positional Warfare is traditional conventional warfare, attempting to take and hold territory. This is going to be done generally by the regular forces of the Red Army.
• Mobile Warfare consists of fast-moving attacks, “hit-and-run”, performed by the regular forces of the Red Army, typically on the flanks of advancing enemy forces.
• Guerrilla Warfare consists of operations of sabotage, assassination and raids on poorly defended targets, performed by irregular forces (that is, not the Red Army), organized in the area of enemy “control”.

The first phase of this strategy is the enemy strategic offensive (or the “strategic defensive” from the perspective of Mao). Because the enemy is stronger and pursuing a conventional victory through territorial control, they will attack, advancing through territory. In this first phase, trying to match the enemy in positional warfare is foolish – again, you just lose. Instead, the Red Army trades space for time, falling back to buy time for the enemy offensive to weaken rather than meeting it at its strongest, a concept you may recall from our discussions of defense in depth. The focus in this phase is on mobile warfare, striking at the enemy’s flanks but falling back before their main advances. Positional warfare is only used in defense of the mountain bases (where terrain is favorable) and only after the difficulties of long advances (and stretched logistics) have weakened the attacker. Mobile warfare is supplemented by guerrilla operations in rear areas in this phase, but falling back is also a key opportunity to leave behind organizers for guerrillas in the occupied zones that, in theory at least, support the retreating Red Army (we’ll come back to this).

Eventually, due to friction (drink!) any attack is going to run out of steam and bog down; the mobile warfare of the first phase is meant to accelerate this, of course. That creates a second phase, “strategic stalemate” where the enemy, having taken a lot of territory, is trying to secure their control of it and build new forces for new offensives, but is also stretched thin trying to hold and control all of that newly seized territory. Guerrilla attacks in this phase take much greater importance, preventing the enemy from securing their rear areas and gradually weakening them, while at the same time sustaining support by testifying to the continued existence of the Red Army. Crucially, even as the enemy gets weaker, one of the things Mao imagines for this phase is that guerrilla operations create opportunities to steal military materiel from the enemy so that the factories of the industrialized foe serve to supply the Red Army – safely secure in its mountain bases – so that it becomes stronger. At the same time (we’ll come back to this), in this phase capable recruits are also be filtered out of the occupied areas to join the Red Army, growing its strength.

Finally in the third stage, the counter-offensive, when the process of weakening the enemy through guerrilla attacks and strengthening the Red Army through stolen supplies, new recruits and international support (Mao imagines the last element to be crucial and in the event it very much was), the Red Army can shift to positional warfare again, pushing forward to recapture lost territory in conventional campaigns.

Through all of this, Mao stresses the importance of the political struggle as well. For the guerrillas to succeed, they must “live among the people as fish in the sea”. That is, the population – and in the China of this era that meant generally the rural population – becomes the covering terrain that allows the guerrillas to operate in enemy controlled areas. In order for that to work, popular support – or at least popular acquiescence (a village that doesn’t report you because it supports you works the same way as a village that doesn’t report you because it hates Chiang or a village that doesn’t report you because it knows that it will face violence reprisals if it does; the key is that you aren’t reported) – is required. As a result both retreating Red Army forces in Phase I need to prepare lost areas politically as they retreat and then once they are gone the guerrilla forces need to engage in political action. Because Mao is working with a technological base in which regular people have relatively little access to radio or television, a lot of the agitation here is imagined to be pretty face-to-face, or based on print technology (leaflets, etc), so the guerrillas need to be in the communities in order to do the political work.

Guerrilla actions in the second phase also serve a crucial political purpose: they testify to the continued existence and effectiveness of the Red Army. After all, it is very important, during the period when the main body of Communist forces are essentially avoiding direct contact with the enemy that they not give the impression that they are defeated or have given up in order to sustain will and give everyone the hope of eventual victory. Everyone there of course also includes the main body of the army holed up in its mountain bases – they too need to know that the cause is still active and that there is a route to eventual victory.

Fundamentally, the goal here is to make the war about mobilizing people rather than about mobilizing industry, thus transforming a war focused on firepower (which you lose) into a war about will – in the Clausewitzian (drink! – folks, I hope you all brought more than one drink for this …) sense – which can be won, albeit only slowly, as the slow trickle of casualties and defeats in Phase II steadily degrades enemy will, leading to their weakness and eventual collapse in Phase III.

I should note that Mao is very open that this protracted way of war would be likely to inflict a lot of damage on the country and a lot of suffering on the people. Casualties, especially among the guerrillas, are likely to be high and the guerrillas own activities would be likely to produce repressive policies from the occupiers (not that either Chiang’s Nationalists of the Imperial Japanese Army – or Mao’s Communists – needed much inducement to engage in brutal repression). Mao acknowledges those costs but is largely unconcerned by them, as indeed he would later as the ruler of a unified China be unconcerned about his man-made famine and repression killing millions. But it is important to note that this is a strategic framework which is forced to accept, by virtue of accepting a long war, that there will be a lot of collateral damage.

Now there is a historical irony here: in the event, Mao’s Red Army ended up not doing a whole lot of this. The great majority of the fighting against Japan in China was positional warfare by Chiang’s Nationalists; Mao’s Red Army achieved very little (except preparing the ground for their eventual resumption of war against Chiang) and in the event, Japan was defeated not in China but by the United States. Japanese forces in China, even at the end of the war, were still in a relatively strong position compared to Chinese forces (Nationalist or Communist) despite the substantial degradation of the Japanese war economy under the pressure of American bombing and submarine warfare. But the war with Japan left Chiang’s Nationalists fatally weakened and demoralized, so when Mao and Chiang resumed hostilities, the former with Soviet support, Mao was able to shift almost immediately to Phase III, skipping much of the theory and still win.

Nevertheless, Mao’s apparent tremendous success gave his theory of protracted war incredible cachet, leading it to be adapted with modifications (and variations in success) to all sorts of similar wars, particularly but not exclusively by communist-aligned groups.

Bret Devereaux, “Collections: How the Weak Can Win – A Primer on Protracted War”, A Collection of Unmitigated Pedantry, 2022-03-03.