从“各修各境”到“通力合作”——20世纪20-30年代山东黄河旧运河以西河段民埝治权统一问题刍议

From “Minding One's Own Bu siness” to “Full Inter-County Cooperation” A Tentative Discussion of the Unification of the Management over the “Minnian” dykes to the West of the Old Grand Canal in Shandong Province during the 1920s and 30s

论文讨论了二十世纪20-30年代山东省政府统一该省黄河旧运河以西河段民埝治权的问题。围绕该河段民埝管理问题,当地社会形成了一套"按工摊捐"的修守办法,即民埝某一处工程的修守是按工程估价向该处工程所圈护(或言所能影响到)的滩地以县为单位摊派埝捐办理。该办法理论上虽属公平合理,但却因各县间所持"私见"难以有效施行。所谓"私见"的缘由,在该段黄河南、北两岸地区却有所不同,前者主要是因各县"隐瞒地亩"问题引生,后者主要是由工款"摊派多寡"问题触发。河务局制定的所谓"通力合作"的"按亩摊捐"的办法,即由该河段各县滩地统一缴纳一定额度的亩捐,由民埝专款保管委员会支配,主要着眼于后者,既于解决前者无补,又罔顾各处民埝工情的差异,把地方社会内部的利益纠纷简单化了。国家政权在介入民埝管理这一地方事务的过程中,也显示了其力量的有限性。最后山东黄河旧运河以西河段民埝治权局部统一的达成,是地方与政府、地方各县之间互相博弈与妥协的结果。

This paper discusses the unification by the Shandong Provincial Government of the management of small river dikes,or ＂ Minnian＂,in the area to the west of the old Grand Canal during the 1920s and 30s.The local community had formed a so-called ＂ Angong tanjuan＂ programme on the management of the ＂ Minnian＂ which involved allocating a share of the estimated cost of conserving agiven section of the Minnian to the corresponding county whose land would otherwise have been flooded.Although this program was in theory fair and reasonable,its implementation was difficult due to the disputes between the counties in this region.Such local disputes vary in substance according to which side of the Yellow River the counties were found-in the northern side the reason was the existence of land hidden from official surveys;in the southern side,this was caused by the uneven distribution of repair costs for the dykes.To tackle this problem,the Shandong Yellow River Bureau formulated the ＂ Anmu tanjuan＂ programme,whereby all counties in the region pay a tax according to its land holdings,the amount of which is set and governed by the Special Funds Management Committee.This programme resolved the problems for the northern side,but was useless for the southern side.It also disregarded the actual difference in workload incurred in conserving the north and south banks of the river.By oversimplifying the dispute of interest within local society,the solutions of the state served to exacerbate the problem.In the process of involving itself in the local management of the ＂ Minnian＂,the state exposed the limits of its abilities.Ultimately incomplete,the unification of management over the ＂ Minnian＂ was a compromise reached over a dispute between local society and the government,and between the local counties themselves.