Guerrilla organisations vary greatly in their relations with civilians living in territories that they control. The NRA presents a rare, though not unique, case of a guerrilla group whose commitment to popular support deepened into democratic village management during the course of its civil war. The significant causal factors in deepening this commitment were its ideological conviction, relative military strength, dependence on civilian material assistance, and need for accommodation with civilian preferences in its operational area. It withdrew this commitment when it was under severe military pressure. Military survival was central to NRA calculations, but insufficient to determine its relations to civilians. In those phases of the war when the NRA soldiers were relatively secure, these other factors determined the type of civilian participation it supported. It organised clandestine civilian committees for assistance when it was dependent on civilians. During those periods when it held territory, it held elections for committees which managed their villages without NRA supervision.

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