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The Pattern Oe National Political Integration in China, 1949-54: the Role of the Greater Administrative Regions

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The Pattern Oe National Political Integration in China, 1949-54: the Role of the Greater Administrative Regions THE PATTERN OE NATIONAL POLITICAL INTEGRATION IN CHINA, 1949-54: THE ROLE OF THE GREATER ADMINISTRATIVE REGIONS Ronald Colin Keith Thesis submitted for the degree of Doctor of Philosophy at the University of London, School Oriental and African Studies. July 1977 ProQuest Number: 10672646 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a com plete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. uest ProQuest 10672646 Published by ProQuest LLC(2017). Copyright of the Dissertation is held by the Author. All rights reserved. This work is protected against unauthorized copying under Title 17, United States C ode Microform Edition © ProQuest LLC. ProQuest LLC. 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106- 1346 2 ABSTRACT Discussion here is generally inclusive of perspective relating to the processes of national political integration in 1949-1954. Firstly, "political integration" is defined in terms of the creation of a new state super-structure, hence there is a review of the problems of integration in terms of the relation between levels of administration and between systems of organization such as the economic and financial departments of state administration. One must also consider the nature of the relation between general systems of army, Party and state. "Political integration" is secondly viewed in larger terms of the relation of the mass line to government. The pattern of national political integration is discussed generally in terms of the transposition of Yenan strategies of leadership and organization to the plane of national political development in the early 1950's. The pre-1949 "pattern" had been characterized by the inter-relation of armed struggle with various political and economic programmes, and it is important to note that the CCP came to power in 1949, already knowing how to govern. The various perspectives outlined above are very general, and the lines of this inquiry are more closely defined for purposes of research. Discussion is structured in terms of a focus on a particular level of administration, namely, the Greater Administrative Region. The pattern of centralization, affected by this level, in fact reveals the transposition of earlier experience to the plane of national political development. The role of this level of government is discussed in terms of several specific problem areas; for example, there is lengthy discussion of specific problems, relating to the creation of a national economy, but there is also discussion of the application of mass line techniques to government in terms of the role of supraprovincial government in the development of the mass campaigns of 1950-52. Many of the policies and strategies discussed are still very much relev’ant to present-day problems of organization, and it is hoped that a discussion of the pattern of national political integration in the early 1950fs will further an understanding of organization in China today. 4 ACKNOWLEDGEMENTS I would like to take this opportunity to express my gratitude to the University of Toronto, the Waring Fellowship Foundation and the Canada Council for financial assistance over the years of my research. I am also particularly indebted to Associate Professor Jack Gerson of the University of Toronto’s Department of History for his kind encouragement and advice over the last several years. X would like to express my deepest appreciation to Professor Stuart Schram of the School of Oriental and African Studies for his assistance over the course of my research and the preparation of this dissertation. Professor Schram.’ s writings on democratic centralism have proved to be a source of inspiration for the student of modern Chinese organization. I accept full responsibility for any and all of the deficiencies which may appear in the following pages. 5 TABLE OF CONTENTS TITLE PAGE Page 1 ABSTRACT 2-3 ACKNOWLEDGEMENTS 4 TABLE OF CONTENTS 5 MAPS 6 ABBREVIATIONS 7-8 I. INTRODUCTION 9-19 II. FROM BORDER REGION TO LIBERATED REGION 20-78 i) The Politics of Disintegration, pp.20-33 ii) Administrative Philosophy and the Implementation of Policy in the Yenan Period, pp.34-42 iii) From Border Region to Liberated Region, pp.43-78 III. THE CREATION OF A NEW NATIONAL STATE STRUCTURE 79-166 i) The Rationality of Administrative Demarcation, p p . 79-101 ii) Constitutional Structure and Administrative Theory: The Devolution of Administrative Responsibility in a Unitary State, pp.102-142. iii) Towards a Reassessment of "Regionalism", pp.143-166 IV. THE DYNAMICS OF POLICY IMPLEMENTATION IN THE ADMINISTRATION OF A NATIONAL ECONOMY 167-247 i) Administrative Strategy and Policy Emphases of the Early 1950*s, pp.167-183 ii) The Struggle for the Centre’s Economic and Fiscal Integrity, pp.184-200 iii) GAR Administration and the Restoration of the Interflow of Urban-Rural Trade, pp.201-219 iv) "Taking the State Plan as Law", pp.22tJ~247 V. MASS MOBILIZATION AS "POLITICAL INTEGRATION" 24&-33R i) "Administrative Distance" and Leadership Problems in the Activation of the Mass Line, pp.2/+B~267 ii) "Leaping from Points to Surface in the Newly Liberated Areas", pp,2<o8-29G iii) The Measure of "Counter-Revolution" in Victory, pp. 297-332. VI. CONCLUSION 333-352 APPENDIX 1 353-354- SELECTIVE BIBLIOGRAPHY 35!>-364- GLOSSARY OF SELECTED CHINESE TERMS RELATING TO ADMINISTRATION AND POLICY 365-37T 6 MAPS 1, PLA Map of Liberated Areas as of June 1948. Page 58 2. Map of the Greater Administrative Regions of the People's Republic of China, 1949. 61 7 ABBREVIATIONS OF SOURCES CB Current Background CCJP Chang-chiang jih-pao CCWT "Ching-chi wen-t.1 i yu ts1 ai-cheng wen-t1 i11 CFKTPK Cheng-fu kung-tso pao-kao hui-pien CFJP Chieh-fang jih-pao CQ China Quarterly ECMM Extracts from China Mainland Magazines HHJP Hs in-hua j ih-p ao HHYP Ilsin~hua yueh-pao FLHP Chung-yang jen-min cheng-£u fa-ling hui-pien CYTCCTFLHP Chung-yang tsfai-ching cheng-ts?e fa-ling hui-pien HTCCCTC Hua-tung ch'u ching-chi tsTai-cheng fa-ling hui-pien JMJP Jen-min jih-pao JMNC Jen-min nien-chien JMST Jen-min shou-ts'e JPRS Joint Publications Research Service KKWH Chung-hua jen-min kung-ho kuo kTai-kuo wen-hsien KPHHTL Kan-pu hsueh-hsi tzu-liao NCNA New China News Agency NFJP Nan-fang jih-pao SW Selected Works TPJP Tung-pei jih-pao WKKCCK Wo-ltuo lcuo-chia chi-kou ABBREVIATIONS OF INSTITUTIONS AC Administrative Committee CCPCC Central Committee of the Chinese Communist Party CPG Central People’s Government CPGC Central People's Government Council CPV Chinese People's Volunteers GAC Government Administration Council GAR Greater Administrative Regions MAC Military and Administrative Committee OLCPG Organic Laws of the Central People's Government ORGAR Organic Regulations of the Greater Administrative Regions ORPPG Organic Regulations of Provincial People's Governments PLA People's Liberation Army PRC People's Republic of China PRMC People's Revolutionary Military Council CSB/CSMAC/CSAC Central-South Bureau; Central-South Military and Administrative Committee; Central-South Administrative Committee ECB/ECMAC/ECAC East China Bureau; East China Military and Administrative Committee; East China Administrative Committee NCB/NCAC North China Bureau; North China Administrative Committee NEB/NEPGC/NEAC Northeast Bureau; Northeast People's Government Council; Northeast Administrative Committee NWB/NWMAC/NWAC Northwest Bureau; Northwest Military and Administrative Committee; Northwest Administrative Committee SWB/SWMAC/SWAC Southwest Bureau; Southwest Military and Administrative Committee; Southwest Administrative Committee 9 INTRODUCTION In a great historic moment, Mao Tse-tung on October 1st 1949, stood on the rostrum in Tien-An Men Square, and speaking into the microphone formally announced the establishment of the People’s Republic of China. A few flag was raised over a ’'new” China, and no doubt Mao reflected on more than two decades ■ of bitter struggle and hard fighting. But fundamental questions as to national political integration had yet to be resolved, and a military victory over the KMT, while obviously a prerequisite to the process of national political integration, was only a beginning. As of October 1949, there was a vast "newly liberated" country­ side in Southwest, Northwest, Central-South and East China, which had yet to be won politically. Throughout large parts of the country, there was no basic-level Party organization, and new state administrative structures had yet to be established. In many regions there was serious social disorder. Endemic banditry persisted. The problems of warlordism did not disappear overnight with the simple announcement of a people’s regime. The new central government structure was weak and provincial administration was in a shambles. In some cases provincial units had yet to be reinteg­ rated. Furthermore, the new central government had yet to create a national economy. A national budgetary framework had not been established and the centre had yet to impose fiscal discipline at the local levels. "Old liberated areas" were subsidizing "newly liberated areas". Various currencies had yet to be unified. The new people's government was struggling in the midst of an economic and fiscal crisis of alarming proportions. Inflation was rampant; the budget was unbalanced; and a mammoth personnel establishment of over nine million had to be supplied. It was only in September 1948 that the CCP leadership began to articulate a national perspective on the process of political integration, as the PLA swiftly moved from interior to exterior 10 lines of military conflict. Under the new conditions of positional warfare, there was a reassessment of strategic priorities.
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