地方性探索:1952年前的民族区域自治实施——以川北行署平武藏区自治委员会成立为考察中心

The Implementation of National Regional Autonomy Before 1952——Take the Establishment of the Pingwu Tibetan Autonomous Commission as an Inspection Center

中央人民政府于1952年出台《中华人民共和国民族区域自治实施纲要》之前,民族区域自治政策的实施、"民族自治区"的创建,几乎均由地方政府推动。就"民族的区域自治"政策实施而言,从《中国人民政治协商会议共同纲领》到《中华人民共和国民族区域自治实施纲要》,这段时间构成人民共和国初期民族区域自治政策的试验探索期,对政策完善、制度成型产生了深远影响。1950年8月成立的"平武藏区自治委员会",作为新中国成立最早的民族区域自治机构之一,对研究试验探索期政策实施的背景、特征、效果等学术问题具有重要的样本意义。通过对平武藏区自治委员会成立缘起、过程、影响等环节的研究,我们认为,川北行署在平武藏区的实践探索,有助于中央政府总结民族区域自治实施的经验、完善政策及制度设计;地方政府实施区域自治政策工作中表现出来的诸多不足,反映了完善顶层设计之迫切,亦为中央吸取正反两方面的经验并制定"实施细则"提供了借鉴。

Before the Central People's Government promulgated the Outline for the Implementation of Regional National Autonomy of the People's Republic of China in 1952,the implementation of the policy of regional national autonomy and the establishment of “national autonomous regions” were almost promoted by local governments. As far as the implementation of the policy of “regional national autonomy” is concerned,the period,from the Common Program of the Chinese People's Political Consultative Conference to the Outline for the Implementation of Regional National Autonomy of the People's Republic of China,constitutes an experimental exploration of the policy of regional national autonomy in New China,which has a far-reaching impact on policy improvement and system formation. The Pingwu Tibetan Autonomous Commission,established in August 1950,one of the earliest national regional autonomous institutions established in New China,has a significance as a sample to study the background,characteristics and effects of policy implementation during the experimental exploration period. With the study on the origin,process and influence of the Commission,this paper believes that the practical exploration of local governments will help the central government to learn from experiences and come out with a better policy system. Many deficiencies reflected in the implementation of regional autonomy policy by local governments reflect the urgency of improving the top-evel design,and also provide a good lesson for the central government to learn from experiences so as to formulate the implementation rules.