论秦代官吏“吏”“民”身份的分化与基层治理之特性——以官吏告劾制度为视角

On the Differentiation of the ldentity of“Li”and“Min”in Qin Officials and the Characteristics of Basic-level Governance in Qin Dynasty--From the Perspective of the lmpeach System

秦代官吏在职权范围内揭发非法行径所使用的法律术语,分为“告”与“劾”。使用“告”的官吏有校长、狱史等县属吏,里典、田典、里父老等里吏,以及什长、伍长等什伍组织吏员;使用“劾”的官吏有县令、县丞、监御史等。二者在司法活动中发挥的作用不同,使用“劾”的官吏有权限受理“告”、处理司法案件、任命使用“告”的官吏,居于主导地位。这两类官吏在身份上存在本质差别:前者由无爵者或民爵者担任,由长官任命,职事属于“役”,其身份本质上为“民”;后者由官爵者担任,经君主任命,是真正意义上的官吏,属于特权阶层。秦在告劾制度中对官吏的安排设置,不但是对官吏中“吏”“民”阶层的划分,还是统筹协调不同阶层官吏、重视基层社会治理与强化中央集权的举措。特别是里吏对“告”的使用,反映了秦基层治理的特殊之处,即通过削弱基层社会中原有宗族豪强的势力,打造受制于国家的里吏阶层,以新的国家秩序改造旧的社会秩序,强化中央集权,维护国家治理。

The legal terms used by the officials in Qin Dynasty to expose illegal acts in their power were respectively"gao"and"he".The officials who used"gao"included xiaozhang,yushi,lidian,tiandian,lifulao,as well as the officials of shiwu.The officials who used"he",including the xianling,xiancheng and jianyushi,had no intersection with each other.And the officials who use"he"have authority to accept"gao",handle judicial cases,appoint the officials who use"gao"and play a leading role in judicial activities.These two types of officials are essentially different from each other.The former is held by the non-jue or the minjue,whose office belongs to"yi"and whose identity is essentially"min",while the latter is held by the guanjue and appointed by the monarch,so it is an official in the real sense.Qin's arrangement of the officials in the impeach system was not only a division of the"li"and"min"among the officials,but also a measure to coordinate the different levels of officials,attach importance to grassroots social governance and strengthen centralization.In particular,the use of"gao"by lili in Qin Dynasty reflects the special nature of grass-roots governance.It weakened the power of the patriarchal clan in grassroots society and established an official class subject to the state,to create a new national order,strengthen centralization of power,and safeguard national governance.