战时国民政府治黄体制的运行及其困境——以黄泛区治黄工程为中心

The Wartime Yellow River Conservancy System of the Nationalist Government and Its Dilemmas in Practice:A Case Study on the Water Conservancy Projects in the Yellow River-flooded Area

全面抗战爆发后,国民政府将治黄纳入战时运行轨道,专司黄河兴利防患事务的黄河水利委员会在隶属行政院经济部的同时,亦受到第一战区司令部的指挥监督,形成一种双重管隶、三方关联的繁复运作模式。在此治理模式下,泛区治黄工程的运作步履维艰、漏洞百出,呈现责任主体不明,军权、财权、事权相互分离,各方掣肘、推诿的混乱局面,反映出国民政府战时体制在职能设计、价值取向和行政能力等方面存在严重的缺陷。

After the outbreak of the all-out War of Resistance Against Japanese Aggression,the Nationalist Government shifted its Yellow River Conservancy system to the wartime mode.Previously under the direction of the Economy Department of the Executive Yuan,the Yellow River Conservancy Commission was also put under the leadership of the First Theatre Command.As a result,a complicated system featured with a dual leadership mode and three-party interactions came to the fore.Nevertheless,this new system turned out to be a disaster in practice:the implementation of Yellow River conservancy projects was unacceptably behind the schedule and a chaotic situation emerged due to the overlapping functions of and blame avoidance tactics by relevant actors.Such a result laid bare the defects in the wartime system of the Nationalist Government in terms of functional design,priority setting and administrative capacity.