"Given the litigious nature of the United States, it should be no surprise that the American military has more lawyers than all other countries combined. Legal advisers are integral to planning and operations at all levels, reviewing targets and rules of engagement. Even at the White House level, constraints on civilian damage, either implicit or explicit, are articulated by legal counsel. Specific rules of engagement are further developed in the Pentagon by the Defense Department civilian leadership and the Joint Chiefs of Staff, with legal input, of course."
www.washingtonpost.com/wp-dyn/articles/A44546-2001Dec14.html
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