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It simply means that when a nation-state (in this case the United States) has a legitimate conflict of interest with another foreign power which must be, either by necessity or by default (aggression, preemptive action, etc.), resolved through military action, the sailors, soldiers, and subjects of that power will be treated as enemies in accordance with the law of war. After the conflict reaches a conclusion in the form or an armistice, treaty, surrender, or truce and peace returns the nation-state will hold no illwill towards their former opponent. The significance of this passage is that America will fight who, when, and how it needs to and afterwards

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Q: What does enemies in war. in peace-friends?
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