从分藩到分省——清初省制的形成和规范

FromFenfan to Fensheng:The Early Qing Development and Standardization of the Provincial System

清初江南、湖广、陕西三省的分省,是元代实施行省制度以后较为特殊的一次分省过程。就行政区划、职官制度层面来说,三省的布按两司与巡抚员缺的增裁、辖区的调整在顺治十八年至康熙六年间逐步完成。三省保留下来的区域性巡抚职能得以调整,其与布按两司之间新的行政关系得到确立,巡抚由此全部下辖布按两司,三省事实上析分为六省。在这个过程中,既有应对区域问题的局部改革,也有全国性的政策变化,动因各不相同。此后,进入《清会典》的规范过程。“分藩”是对三省布政使司衙门及其辖区变化的记载,“分省”是对新的省行政机构(政府)和新省区的认同。乾隆十三年九月关于督抚居外官之首的讨论以及御准,表明朝廷对新省制的一种确认。康熙、雍正两朝《清会典》的规范随着认识的变化而有所不同,乾隆二十三年编纂的《清会典》载全国有十八省、督抚为“外官”,确立了十八省与清代省制的法定地位。

After the Yuan dynasty’s introduction of a provincial system,the early Qing dynasty’s action in making Jiangnan,Huguang and Shaanxi into provinces represents a special process of provincial division.In terms of administrative divisions and bureaucratic levels,the reordering of the three provinces’structure into commissions for administration(buzhengshisi)and surveillance(anchasi)and the setting up of governors(xunfu)were gradually completed between the 18th year of Shunzhi(1661)and the 16th year of Kangxi(1667).The functions of the regional governors that the three provinces had retained were altered,with a new administrative relationship being established between them and the two commissions.From this point,the provincial governor had jurisdiction over the two commissions and the three provinces were in fact divided into six.This process saw not only partial reforms addressing regional issues but also national policy changes,each driven by different forces.This was followed by the process of standardization recorded in the Qing Huidian(Official Qing Statutes).Fenfan(division of feudatories)”records changes in the three provinces’administration commission offices and their jurisdiction;Fensheng(division of provinces)recognizes the new provincial administrative organs(governments)and new jurisdictions.The discussion of and royal assent to the xunfu having the highest rank among provincial officials,in the 9th month of the 13th year of Qianlong(1748),showed the court’s confirmation of the new provincial system.The standards in the Qing Huidian in the Kangxi and Yongzheng reign periods varied with changes in understanding;that compiled in the 23th year of Qianlong(1758)recorded that China had eighteen provinces and provincial governors were local officials,confirming the statutory position of the eighteen provinces and the provincial system of the Qing dynasty.