民族自治与中央集权－1950年代北京藉由行政区划将民族区域自治导向国家整合的过程

Ethnic Autonomy versus Centralization-How Beijing Integrated "Regional National Autonomy" into the State in the 1950s

1950年代，北京的新政权以「民族识别」和「民族区域自治」两项新政策，取代了清末和民国针对边疆少数民族地区推行的行省化政策。本文考察中共在建立五个省级民族自治区的同时，调整边疆行政区划的过程，指出其政策实未改变清朝与中华民国政府的国家整合目标，且在执行方式上，汲取了中国历朝和苏联强化中央集权、防杜少数民族分离的经验。在新疆，中共以「自下而上，广封众建」的方式，操作各级民族自治地方的行政建置、辖境划分事务，让维吾尔人的政治资源受到其他少数民族的稀释与制衡。而在其他四个自治区，中共也因时因地制宜，或将汉人聚居区划入内蒙古，使蒙古人成为少数；或压缩藏族与回族自治的地理空间；或整合、笼络非汉民族中人数最多又温驯的广西僮族，扩大其自治区域范围，造成僮族与岭南汉人地方主义传统相互牵制的局面。本文认为，中共推行民族区域自治制度的手法灵活、细腻而有原则，最终不止成功地在法律上将非汉民族地区事务明确定位为主权国家内政，同时也将该制度中潜在的离心因子有效局限在可控制范围内，真正实现了中央政府对这些地区直接有效的政治统治和行政管辖。

In the 1950s, the Communist regime's ”Regional National Autonomy” policy replaced the earlier ”centralization” policies of the Qing and the Republic of China in regard to frontier minority areas. In a fashion similar to the Soviet Union's titular nations, a number of areas associated with one or more ethnic minorities were designated as autonomous within the People's Republic of China. These areas were recognized in the PRC's constitution and nominally given a number of rights not accorded to other administrative divisions. However, this act did not mean that the Beijing government in fact changed earlier national goal of integration; on the contrary, the PRC inherited the experiences of centralization and anti-separatism from previous Chinese regimes as well as the Soviet Union, and through administrative techniques was able to keep latent separatism under control. In Xinjiang, the PRC operated a policy of ”from the bottom up and reestablishing feudal lords to lessen their (individual) strengths.” Beijing, established numerous non-Uyghur autonomous regions, from ethnic townships and autonomous counties to autonomous prefectures, which diluted and diverted the Uyghurs' political resources. In the four other provincial-level autonomous regions-Inner Mongolia, Guangxi, Ningxia and Tibet-autonomous ethnic groups either became minorities in their own Autonomous Regions, or else found their geographical space diminished.