论文标题:民国时期社会救灾研究
论文作者
论文导师 戴鞍钢,论文学位 博士,论文专业 中国近现代史
论文单位 复旦大学,点击次数 103,论文页数 287页File Size17557K
2006-04-10论文网 http://www.lw23.com/lunwen_280469542/
Henan Province ;disaster relief;mechanism operation
本文以1927—1937年的河南为中心，运用历史学、社会学、心理学、政治学的理论和方法，在概述河南灾况、灾因、影响以及对救灾行政机构梳理的基础上，对社会救灾的基本程序、措施、救灾资金的来源和分配、救灾物资的运输和救灾信息的传递、救灾的奖惩和监督、制约救灾成效的要素进行了全方位整体性地透视和考察，以期揭示国民政府救灾机制的运作过程以及其中存在的问题，并客观展示政府与民间如何应对灾荒、二者之间的关系怎样、社会应对灾荒的能力、该时段的救灾与传统相比有何变化等等。 第一章对1927-1937年间河南省的灾荒状况及其社会后果进行了概述，并在着重对中央和河南救灾行政机构的组织沿革进行回顾梳理基础上，简要论析了具有时代特色的全国性社会慈善团体和河南地方性的慈善机构概况。 1927-1937年短短的十年期间，河南省是连年有灾、多灾并发、灾区广大；灾荒频发固然与河南的地理气候等自然因素有关，但水利废弛、种植作物比例失调、农村经济的衰败等社会因素更是灾荒发生的主凶；每一次灾害的发生，在给人民带来生命、财产上的巨大损失的同时，也造成劳动力、耕畜、森林的极度缺乏、田地荒芜，使得农民生存的自然和社会环境进一步恶化，为灾荒提供了再次发生的机缘。 第二章详细考察了国民政府救灾的基本程序与执行救灾程序之有关人员的费用，并对河南灾荒的应对措施及其减灾、防灾的措施进行了集中探讨。 在继承古代荒政基础上，国民政府时期的救灾一般需经过报灾、勘灾、查赈、放赈一套固定的程序，救灾办赈人员的费用也有明确的条文规定；救灾的措施大致包括以急赈、调粟、除害为主要内容的临灾治标和以工赈、农赈为主的灾后补救两大方面；减灾、防灾则从以挽救农业、复兴农村和重视仓储为内容的改良社会条件和以提倡造林、重视水利等为主的改良自然条件两方面着手。 第三章以河南为中心对政府和社会救灾资金的来源进行了梳理考察，并对救灾资金的分配标准及其分配中存在的问题进行了实证性探讨和分析。 大体说来，社会慈善机关通过向海外华侨及国外募捐、向银行商借、向个人或中外厂商劝募、房捐、会费、游艺募捐、新式媒介募捐、政府补助等方式筹募救灾资金，政府则通过发行赈灾公债、摊派、机关捐薪、举办某项税目附加、借款、救灾准备金等方式筹措资金；救灾资金分配原则上是根据灾情轻重，将灾分等的方法进行，但在实际操作中，由于分配标准本身不明确及人为因素，使得赈款分配蒙上了一层并非完全公平的阴影。 第四章详细考察了国民政府对赈运物品、移送灾民、信息传递等方面的优惠政策，并结合河南方面相关的史料，对信息传递的渠道、方式、运输和信息传递中存在的问题等政策与实施间的距离进行了探析。 国民政府对赈运物品提供一定的免费免税优惠，并对灾民提供免费移送，但道路状况的不尽如人意、运输工具的缺乏、免费执照请领中的耗时等因素，使得制度规定与实际实施上总有一定距离；国民政府对传递救灾信息也提供免费优惠，灾情信息大致通过官方和民间两种渠道，以传统的书信和具有近代气息的电报、电话、报刊、杂志等方式进行传递，救灾信息传递中存在通讯系统的人为自然破坏、振务电报的请领困难、报刊版面有限等问题。 第五章从制度的层面对国民政府时期的救灾奖惩法规进行了梳理考察，并结合河南的资料，从实践层面对法规落实状况进行了管窥，同时，也对救灾的监督方式、监督的实效进行了分析和探讨。 国民政府时期，针对政府和民间不同的对象、事业，制定了对捐募者、办赈出力者、兴办防灾设施有功者等相关内容的奖励条文，并注重其贯彻执行，同时，政府也对办赈人员和慈善团体救灾中的违规违法行为进行了制度规定，但惩罚制度由于本身的缺陷、监督机制不健全等原因，无法取得应有的成效；救灾的监督方式，官赈中采取因果报应、民众监督、行政系统中的上下级间的监督、监察制度的监督等方式，义赈中采取业报轮回报应、自身体制内的监督、官方的监督、大众的监督等方式，但在缺乏良好的政治环境、其它行政系统的配合下，监督效果不大，贪污仍非常普遍。 第六章对制约河南救灾成效的主要因素进行了考察，尤其探讨了救灾行政人员的基本概况，揭示了救灾成效不著的原因。 战争频繁、土匪遍地、政局动荡是影响河南救灾成效的社会环境因素，资金短缺、经费支绌是造成救灾治标治本计划不能良好执行的财政因素，大量素质低下、临时凑合、缺少献身服务精神的地方办赈人员的存在是导致救灾低效、办赈不实的主观因素。
Taking Henan Province from 1927 to 1937 as the center, by means of theories and methods in history, sociology, psychology and politics, on the basis of outlining the situation, cause and influence of disasters there as well as sorting out the disaster-relief administrative institutes, this text has overall and comprehensively inspected and seen through the basic procedures and measures of social disaster-relief work, the source and allocation of the relief fund, the transportation of relief goods and the delivery of the disaster-relief information, the award and punishment for the relief work and the supervision on it, and the main factors that restricted the effect and efficiency of the work, in the hope to illustrate the operating process of Kuomintang government"s disaster relief mechanism in which some problems existed, and also to objectively demonstrate the way to cope with disasters and famines for the government and civilians as a whole, the relations between these two sides, the capability to deal with disasters and famines, and changes between relief work then and that of the earlier periods, etc.Chapter One generalizes the disaster situations and their social consequences in Henan Province between 1927-1937 and briefly analyzes, both nationwide and in Henan Province proper, the general picture of the social charity institutions and entities with characteristics of that age, based in the focused reflection and rearrangement of organizational reforms in the central and local disaster-relief administrative agencies.Over a mere span of ten years between 1927 and 1937, Henan Province incurred continuous concurrent and extensive natural disasters. Although the frequencies of the famines were without doubt connected with factors of physical geography like geographical climates, they could also be mainly contributed to the social factors such as dilapidated water conservancy facilities, imbalance of crops plantation and the decline of rural economy, etc. Each disaster would not only bring heavy losses of life and properties upon people, but also cause severe scarcities of labor, domestic animals as well as forest reserves and, at the same time, lay waste enormous farm land. They could further deteriorate the natural and social environment for the survival of peasants, thus providing circumstances for their recurrences.In Chapter Two, a close study is focused on the basic procedures of disaster relief during the Kuomintang administration and the expenditures on the relevant staff who implemented the relief procedures. Also, the measures against disasters, the reduction and prevention of disasters were discussed.Based on the ancient policy on disaster relief, a set of fixed relief procedures, during the Kuomintang administration, consisted of reporting, inspecting, investigating and relieving, and the expenditures on relief implementing staff were also definitely stipulated. The relief measures contained generally two parts, the temporary relief efforts such as emergency aid, grain distributing, and calamity eliminating, etc. and the post-calamity remedies such as working for aid and agricultural loans, etc. The reduction and prevention were tackled in two aspects, the improvement on social conditions featuring saving the agriculture, reviving the countryside and valuing the stockpile, and the improvement on natural conditions featuring encouraging the forestation and valuing the water conservancy.In Chapter Three the resource of funds for disaster relief from government and society is classified and investigated, and the problems in the process of distribution are positively discussed and analyzed.In general, social charitable institutions collected funds for disaster relief through donations from overseas Chinese and foreign countries, through loans from commercial banks, by persuading individuals or Chinese and foreign factory owners to make contributions, through estate donation and membership fees, through money-raising by entertainments and news media, through government subsidies, etc. The government raised funds by floating bonds for disaster relief, by forceful apportion and donations from government offices, through monetary provisions for additional tax item, loans and disaster relief, etc. In principle, funds for disaster relief were distributed on the basis of the degree of disaster damage, which is classified according to a certain standard. But in practice, the distribution of relief funds was not completely fair due to the indefinite distribution standard itself and man-made factors.Chapter Four provides a detailed study on the national government"s preferential policies on relief supplies, refugee"s evacuation, information delivery and so on. It also provides an analytical study of the gap between policies and their implementation.The national government offered certain preferentially free relief supplies and free transportation to refugees. However, more often than not, unsatisfactory roads conditions, transport vehicles deficiency and time spent in asking for and getting free licenses combined to bring about a gap between policies and their implementation. The national government also offered preferentially free relief information delivery, which was carried out through two channels-official one and civilian one, and by two kinds of way-traditional way of letters and modern way of telegram, telephone, newspaper and magazines etc. Relief information delivery suffered from problems such as man-made and natural destruction of communication system, difficulties inasking and getting relief efforts telegrams, and restricted space in newspapers and periodicals.Chapter Five arranges and investigates the laws and regulations of rewards and penalties for disaster relief under the Kuomintang administration"s rule in terms of system, casts a restricted view on the fulfillment of these laws and regulations in terms of practice and meanwhile analyses and explores the means and efficiency of supervision over disaster relief.The Kuomintang administration laid down the reward terms for donors, people who contributed great efforts to disaster relief, and people who rendered outstanding service in constructing the disaster protection facilities, with regard to the different governmental and non-governmental objects and enterprises. It also placed great emphasis on the fulfillment, and meanwhile established the system regulating the illegal activities committed by the relief workers and charities in the process of disaster relief. But because of its own defects and the incompleteness of the supervision system, the penalty system could not achieve its expected effect. As to the means of supervising the disaster relief, the cause and effect punishment, the supervision from the public, the supervision between the high and low level in the administrative system, and the superintendence over the supervision system were carried out in the governmental relief efforts, and the punishment by turns, the supervision within the system, the supervision from the government and the supervision from the public were adopted in the charity relief efforts. But due to the lack of fine political environment and the cooperation of other administrative systems, the effect of the supervision was not satisfactory and corruption still universal.Chapter Six provides a study on the main factors that restricted the disaster relief effects of Henan, and especially probes into the basic general situation of those disaster relief administrators, disclosing causes of inefficiency in disaster relief.Constant warfare, widespread bandits, turbulent political situations were the social factors that affected the disaster relief effects; a shortage of capital and insufficient funds were the financial factors that caused the poor implementation of the plan that brought preliminary and permanent solution to disaster relief. And the existence of a host of regional disaster relief personnel who were low-quality, temporarily-gathered and devotion-lacking was the subjective factor that led to the inefficiency and falseness of disaster relief.
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