- 期刊
如何管理首都？抗戰前的南京警察與城市管理體制
How to Manage The Capital? Nanjing Police and Urban Management System before the Sino-Japanese War
摘要
警察制度是近代歐洲國家鞏固內政的手段，也是近代市政府組織中，維護社會秩序、增進管理效率的次級部門。因此本文以被立為首都後的南京為研究對象，觀察警察是如何發揮管理南京社會的職責。尤其在南京市政府成立後，以專業化的市政分工，接辦管理南京社會的各項業務，南京警察也納入了市政一環，是為市政府監控南京社會、執行管理政策的重要人力。然而南京市政府無法負擔高額的警察費用，國民政府乃在1929年命令市公安局隸屬內政部，而失去警察人力的市政府，等於失去落實管理政策的「執行人員」、查緝不法事件的「執法人員」。因市政府公務員的強制力遠不如警察，導致市民屢有不配合之舉；《違警罰法》賦予警察廣泛的行政裁量權，更向市政府爭奪對南京的管理權。可是單憑警察一己之力，是難以全面管理南京，仍需要市政府給予專業上的協助。最後首都警察廳與南京市政府基於「管理南京」的共同目的，還有功能上的互補性，逐漸從對立轉趨向合作，構成緊密合作「雙重管理體系」。
並列摘要
The police system is a means for modern European countries to stabilize their internal affairs, as well as a sub-department of modern municipal government organizations in maintaining social order and improving management efficiency. This article focuses on how the police fulfilled their duties of managing Nanjing city, which was established as the capital of China in 1927. With its specialized municipal division of labor, Nanjing Municipal Government took over the management of various operations in Nanjing society. The Nanjing police were included in the municipal administration for monitoring Nanjing society and implementing management policies. However, as the Nanjing Municipal Government could not afford the high police costs, in 1929, the Nationalist Government ordered the Municipal Public Security Bureau to be subordinated to the Ministry of the Interior. Losing police manpower, the Municipal Government suffered from a lack of executors, who implemented management policies, and law enforcement officers, who investigated illegal events. As the coercive power of the civil servants of the municipal government was significantly inferior to that of the police, the citizens often failed to cooperate. Besides, the police also competed with the municipal government for the right to manage Nanjing because The Police Violation Penalty Act gave the police extensive administrative discretion. However, it was difficult for the police to fully manage Nanjing alone, and professional assistance from the municipal government was still required. Finally, based on the common purpose of managing Nanjing and the functional complementarity, the Capital Police Department and the Nanjing Municipal Government gradually turned from confrontation to cooperation, which triggered the formation of a dual management system with close cooperation.