治理“妨害”:晚清上海工部局市政管理的演进

Administering "Nuisance:" The Evolution of the Shanghai Municipal Committee's Administration in the Late Qing Period

19世纪中叶,英国政府为了处理各类城市环境污染,借用普通法传统中的"妨害"概念制订了《妨害消除法》,以解决公共卫生问题。工部局在管理上海租界时,借鉴了英国的《妨害消除法》修订《土地章程》及其附律,并根据上海华洋杂处的特殊情况做出了相应的调整。工部局通过妨害治理立法、行政制度设计和司法惩诫,基本满足了城市发展过程中对维护公共卫生和公共秩序的需要。在妨害治理的实践过程中,工部局的行政制度逐步完善,最终在19世纪末分化出近代意义上的公共卫生机构。妨害治理为了维护西方"文明观"和公共行为规范,对租界华人居民进行规训,强迫其改变生活方式,也在一定程度上反映了租界中华洋居民不平等的权力关系。

In the middle of the 19^(th) century,in order to deal with urban pollution,the British government borrowed the concept of 'nuisance' from the common law tradition and passed the Nuisance Removal Act to handle problems involving public health.In the administration of the Shanghai Concession,the Municipal Committee referenced Britain's Nuisance Removal Act to revise its Land Regulations and subsidiary regulations,making appropriate adjustments in light of the special circumstances in Shanghai,where Chinese and foreigners lived side-by-side.By passing the nuisance control legislation,and designing a system of administration and legal punishments through which to enforce it,the Municipal Committee generally met the needs for maintaining public health and public order during course of the city's development.As it put nuisance control into practice,the Municipal Committee's administrative system gradually improved,and finally at the end of the 19 century developed public health institutions in the modern sense.In order to maintain the Western 'cultural outlook' and standards of public behavior,the nuisance control effort regulated the behavior of Chinese citizens in the Concession and forced them to change their lifestyles,reflecting to a certain degree the unequal power relations between the Chinese and foreign citizens in the Concession.