orange dave
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This has been one of the most difficult lines for me to understand, and reconcile with the idea of the Art of War being a manual for peace. If you read it literally, it means that the military should drive policy in a country - which never really works that well. It seems that many of the various conflicts in Asia in recent history and contemporary affairs have been driven by militaries deliberately being delegated too much authority. Even when it's possible to win, might doesn't make right.
That's the literal reading. The Art of War is often used as a business manual, though, and that should have been a big clue. Businesses in Asia tend to think of themselves as agents of the state - not like in the West, (particularly in America) where they generally consider the state to be an obstacle. One good example is in Japan, when Arab countries insisted that they boycott Israel if they were going to sell them oil. Even after the Japanese government decided end the boycott, some Japanese businesses still wouldn't sell to Israel, because that was what they thought would be in Japan's national interests. If you think of the "general" here being a business, then of course they should decide to go ahead or retreat without the direction of the ruler. (Except perhaps in the rare sort of case just described.) And, as with the overall theme of the Art of War, it results in a win-win situation.
As always, modern China (and Japan) give us clues for interpretation. The obvious interpretation isn't always the best one.
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