清季外官制改革中幕职分科治事补证

A Note on the Allocation of Particular Responsibilities to Staff Members in Administrative Reform in the Qing Dynasty

清季预备立宪期间负责官制改革的中央机构,先后有编制馆、考察政治馆、宪政编查馆和内阁法制院。1906年起草外官制两种方案的是编制馆,起草《拟设督抚衙门幕职说帖》的可能是编制馆或考察政治馆,而非宪政编查馆。督抚衙门幕职分科治事制度的确定,经历了如下阶段:比较符合立宪原则的外官制第一种方案遭到各省督抚抵制后,编制馆或考察政治馆在《拟设督抚衙门幕职说帖》中提出设立幕职"分曹治事"作为挽救;编制馆根据说帖在《直省官制总则草案》中拟成"分曹治事"的条文;经修改,成为《各省官制通则》中的"分科治事"条文。《直省官制总则草案》是清季外官制改革中的一份重要文献,对于准确理解幕职分科治事、会议厅的设置、地方行政区划等晚清制度变革颇有助益。

During the preparation of the constitution in the Qing Dynasty,centrally directed reform of the bureaucracy was successively the responsibility of the Bureau of Personnel,the Bureau for the Study of Forms of Government,the Bureau of Constitutional Reform and the Cabinet Bureau of Law.The two 1906 administrative reform projects were drafted by the Bureau of Personnel,while the Bill on Staff Positions in Provincial Civil and Military Governors' Yamen was probably drafted by the Bureau of Personnel or the Bureau for the Study of Forms of Government rather than the Bureau of Constitutional Reform.The reform of the administrative system involving allocating specific responsibilities to the staff members of provincial civil and military governors' yamen went through the following stages:the first plan for administrative reform in accordance with constitutional principles met with resistance from provincial civil and military governors.The Bureau of Personnel or the Bureau for the Study of Forms of Government then proposed the division of staff members according to function as an alternative in the Bill on Staff Positions in Provincial Civil and Military Governors' Yamen.Based on this bill,the Bureau of Personnel added the article on the division of functionaries by responsibility in the Draft General Provisions of the System of Provincial Officials.This article was revised and written into the General Provisions of the System of Provincial Officials.The Draft General Provisions played a key role in administrative reform in the Qing Dynasty.It provides clues for our accurate understanding of institutional reform in the late Qing Dynasty in relation to the allocation of responsibilities to functionaries,the establishment of the Council and local administrative demarcation.