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CORDS was too late and in the wrong place. Although the new CORDS experienced some success in the cities and heavily populated areas, it failed to address the needs of the villages where sympathy and support for the Viet Cong were strong. However, it was not until 1967, under the leadership of Robert Komer, did these agencies combine their efforts in conjunction with the U.S. Civil Operations Revolutionary Development Support (CORDS) was established in Vietnam in 1960 and was a myriad of civilian agencies providing support to the South Vietnamese people. Instead, he pursued the Viet Cong and the North Vietnamese Army through conventional warfare. General Westmoreland failed to understand how important this lifeline was. An insurgency can be fought via counter-insurgency warfare, and may also be opposed by measures to protect the population, and by political and economic actions of various kinds aimed. Without the support of the people the Viet Cong would eventually cease to function. An insurgency is an armed rebellion against a constituted authority (for example, an authority recognized as such by the United Nations) when those taking part in the rebellion are not recognized asbelligerents.
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By doing this the Marines effectively reduced the Viet Cong's access to food, ammunition, supplies, money, and, most importantly, recruits. The Viet Cong relied heavily on the popular support of the people and the Marines understood the importance of separating and safeguarding the people from the guerillas. The Combined Action Program (CAP) was an effective means of combating insurgent/guerrilla actions. During the Vietnam conflict the Marines of 3rd Battalion, 4th Marines, reconstituted a program that had been used during military action in Haiti and Nicaragua. The Marines better understood the nature of the Vietnam conflict and on a small scale, without sufficient support, were able to combat the spread of communism more effectively than any other civilian or military organization there. General Westmoreland believed that pure military action, mass mobilization, and search and destroy missions were the solutions to defeating the North Vietnamese Army and the Viet Cong guerrillas.