边疆治理“外交化”——检讨民国中央政府与边疆地方关系的一个视角

"Diplomatizing"the Border Governance--A Perspective of Reviewing the Relationship between the Central Government and Border Areas in the Republic of China

民国时期的边疆治理呈现出明显的“外交化”特征。1930年代初,国民政府更是将边疆治理“外交化”理论化、政策化。边疆治理“外交化”主要采取搁置、妥协的边疆统合策略,在本质上是向列强让渡边疆地方的相关权益,因此,彼时从政府到舆论均将边疆治理“外交化”政策视作一项权宜之计,即在国家实力不足和地缘政治环境恶劣的情形下,通过边疆外交,最大限度地稳定边疆局势、维护边疆主权。从国民政府边疆治理“外交化”的实施过程来看,伴随着地缘政治因素和国家实力因素两个变量的分化、重组,在不同阶段、不同地方,边疆治理的方式和期待亦有所不同。当国民政府尝试将边疆治理“外交化”的时候,表明国民政府已经深刻认识到,边疆治理应统筹国内、国外两个大局。具体来说,在边疆地区,需要凝聚当地上层政治社会知识精英的人心,求得中央与地方对外政策、行动上的一致;在外交关系上,需要尽可能获得相关利益方的谅解,消解列强干涉中国边疆之可能,并在时机成熟的情形下顺势而为。

During the period of the Republic of China,border governance showed an obvious"diplomatic"orientation.In the early 1930s,the national government theorized and politicized the"diplomatizing"of border governance.The"diplomatizing"of border governance mainly adopted the border integration strategy of shelving and compromise.In essence,it was to transfer the relevant rights and interests of border areas to the great powers.Therefore,at that time,both the government and public opinion regarded the"diplomatizing"policy of border governance as an expedient measure,that is,through border diplomacy under the situation of insuffcient national strength and bad geopolitical environment,the central government will try its best to stabilize the border situation and safeguard border sovereignty.From the perspective of the implementation process of the"diplomatizing"of the frontier governance of the national government,with the diferentiation and reorganization of geopolitical factors and national strength factors their ways and expectations of frontier governance are also different in different stages and places.When the national government tried to"diplomatize"border governance it showed that the national government had deeply realized that border governance needed to coordinate the overall situation at home and abroad.Specifically,in the border areas,it is necessary to unite the hearts of the local upper political and social knowledge elites to achieve the consistency of the central and local foreign policies and actions;In terms of diplomatic relations,it is necessary toobtain the understanding of relevant stakeholders as much as possible eliminate the possibility of foreign powers interfering in China's border areas,and take advantage of the situation when the time was ripe.