民国时期新县制“融保甲于自治”的历史演进

The Historical Evolution of Neighborhood Administration into Autonomy of the New County System in the Republic of China

自南京国民政府推行保甲制度以来,国民政府内部即存在着保甲与自治之争,且这一争论一直延续到1939年新县制颁行之时。新县制明确规定在县乡实行地方自治,从而为这一争论划上了句号。同时,新县制实行乡镇保长及民意机关的选举制度,改变了以往保甲制度单一的“自卫”特性,而将广泛的地方建设事项纳入自治范畴,显示了新县制的民主色彩和地方自治性质。对于新县制之推行,国民政府及政学各界都充满期待。姑不论新县制在实际推行中效能如何,单就制度本身而言,它在一定程度上解决了国民政府在保甲与自治问题上的游移,从制度和法理层面将保甲与自治融为一体,虽然这种融合仅仅是借用地方自治的躯壳来行使保甲制度的内容,但在当时特殊的时代和国情下,亦算得上是一种难得的进步。

Since the implementation of neighborhood administration system in Nanjing National Government,there had been a dispute.In 1939,the new county system clearly stipulated the implementation of local autonomy in counties and townships.For the implementation of the new county system,the national governments and other circles were full of expectations.As far as the system itself is concerned,it solves the problem of the national government’s vacillation on neighborhood administration and autonomy to a certain extent,and integrates neighborhood administration and autonomy from the perspective of system and jurisprudence.Although this kind of integration only borrowed the body of local autonomy to exercise the content of neighborhood administration system,it was a rare progress in the special era and national conditions at that time.