Emperor Kao Tsu came from eastern China, and his family seems to have been a peasant family; in any case it did not belong to the old n.o.bility. After his destruction of his strongest rival, the removal of the kings who had made themselves independent in the last years of the Ch'in dynasty was a relatively easy task for the new autocrat, although these struggles occupied the greater part of his reign. A much more difficult question, however, faced him: How was the empire to be governed? Kao Tsu's old friends and fellow-countrymen, who had helped him into power, had been rewarded by appointment as generals or high officials. Gradually he got rid of those who had been his best comrades, as so many upstart rulers have done before and after him in every country in the world. An emperor does not like to be reminded of a very humble past, and he is liable also to fear the rivalry of men who formerly were his equals. It is evident that little attention was paid to theories of administration; policy was determined mainly by practical considerations. Kao Tsu allowed many laws and regulations to remain in force, including the prohibition of Confucianist writings. On the other hand, he reverted to the allocation of fiefs, though not to old n.o.ble families but to his relatives and some of his closest adherents, generally men of inferior social standing. Thus a mixed administration came into being: part of the empire was governed by new feudal princes, and another part split up into provinces and prefectures and placed directly under the central power through its officials.

But whence came the officials? Kao Tsu and his supporters, as farmers from eastern China, looked down upon the trading population to which farmers always regard themselves as superior. The merchants were ignored as potential officials although they had often enough held official appointments under the former dynasty. The second group from which officials had been drawn under the Ch'in was that of the army officers, but their military functions had now, of course, fallen to Kao Tsu's soldiers. The emperor had little faith, however, in the loyalty of officers, even of his own, and apart from that he would have had first to create a new administrative organization for them. Accordingly he turned to another cla.s.s which had come into existence, the cla.s.s later called the _gentry_, which in practice had the power already in its hands.

The term "gentry" has no direct parallel in Chinese texts; the later terms "shen-shih" and "chin-shen" do not quite cover this concept. The basic unit of the gentry cla.s.s are families, not individuals. Such families often derive their origin from branches of the Chou n.o.bility.

But other gentry families were of different and more recent origin in respect to land ownership. Some late Chou and Ch'in officials of non-n.o.ble origin had become wealthy and had acquired land; the same was true for wealthy merchants and finally, some non-n.o.ble farmers who were successful in one or another way, bought additional land reaching the size of large holdings. All "gentry" families owned substantial estates in the provinces which they leased to tenants on a kind of contract basis. The tenants, therefore, cannot be called "serfs" although their factual position often was not different from the position of serfs. The rents of these tenants, usually about half the gross produce, are the basis of the livelihood of the gentry. One part of a gentry family normally lives in the country on a small home farm in order to be able to collect the rents. If the family can acquire more land and if this new land is too far away from the home farm to make collection of rents easy, a new home farm is set up under the control of another branch of the family. But the original home remains to be regarded as the real family centre.

In a typical gentry family, another branch of the family is in the capital or in a provincial administrative centre in official positions.

These officials at the same time are the most highly educated members of the family and are often called the "literati". There are also always individual family members who are not interested in official careers or who failed in their careers and live as free "literati" either in the big cities or on the home farms. It seems, to judge from much later sources, that the families a.s.sisted their most able members to enter the official careers, while those individuals who were less able were used in the administration of the farms. This system in combination with the strong familism of the Chinese, gave a double security to the gentry families. If difficulties arose in the estates either by attacks of bandits or by war or other catastrophes, the family members in official positions could use their influence and power to restore the property in the provinces. If, on the other hand, the family members in official positions lost their positions or even their lives by displeasing the court, the home branch could always find ways to remain untouched and could, in a generation or two, recruit new members and regain power and influence in the government. Thus, as families, the gentry was secure, although failures could occur to individuals. There are many gentry families who remained in the ruling _elite_ for many centuries, some over more than a thousand years, weathering all vicissitudes of life.

Some authors believe that Chinese leading families generally pa.s.s through a three- or four-generation cycle: a family member by his official position is able to acquire much land, and his family moves upward. He is able to give the best education and other facilities to his sons who lead a good life. But either these sons or the grandsons are spoiled and lazy; they begin to lose their property and status. The family moves downward, until in the fourth or fifth generation a new rise begins. Actual study of families seems to indicate that this is not true. The main branch of the family retains its position over centuries.

But some of the branch families, created often by the less able family members, show a tendency towards downward social mobility.

It is clear from the above that a gentry family should be interested in having a fair number of children. The more sons they have, the more positions of power the family can occupy and thus, the more secure it will be; the more daughters they have, the more "political" marriages they can conclude, i.e. marriages with sons of other gentry families in positions of influence. Therefore, gentry families in China tend to be, on the average, larger than ordinary families, while in our Western countries the leading families usually were smaller than the lower cla.s.s families. This means that gentry families produced more children than was necessary to replenish the available leading positions; thus, some family members had to get into lower positions and had to lose status.

In view of this situation it was very difficult for lower cla.s.s families to achieve access into this gentry group. In European countries the leading _elite_ did not quite replenish their ranks in the next generation, so that there was always some chance for the lower cla.s.ses to move up into leading ranks. The gentry society was, therefore, a comparably stable society with little upward social mobility but with some downward mobility. As a whole and for reasons of gentry self-interest, the gentry stood for stability and against change.

The gentry members in the bureaucracy collaborated closely with one another because they were tied together by bonds of blood or marriage.

It was easy for them to find good tutors for their children, because a pupil owed a debt of grat.i.tude to his teacher and a child from a gentry family could later on nicely repay this debt; often, these teachers themselves were members of other gentry families. It was easy for sons of the gentry to get into official positions, because the people who had to recommend them for office were often related to them or knew the position of their family. In Han time, local officials had the duty to recommend young able men; if these men turned out to be good, the officials were rewarded, if not they were blamed or even punished. An official took less of a chance, if he recommended a son of an influential family, and he obliged such a candidate so that he could later count on his help if he himself should come into difficulties.

When, towards the end of the second century B.C., a kind of examination system was introduced, this att.i.tude was not basically changed.

The country branch of the family by the fact that it controlled large tracts of land, supplied also the logical tax collectors: they had the standing and power required for this job. Even if they were appointed in areas other than their home country (a rule which later was usually applied), they knew the gentry families of the other district or were related to them and got their support by appointing their members as their a.s.sistants.

Gentry society continued from Kao Tsu's time to 1948, but it went through a number of phases of development and changed considerably in time. We will later outline some of the most important changes. In general the number of politically leading gentry families was around one hundred (texts often speak of "the hundred families" in this time) and they were concentrated in the capital; the most important home seats of these families in Han time were close to the capital and east of it or in the plains of eastern China, at that time the main centre of grain production.

We regard roughly the first one thousand years of "Gentry Society" as the period of the Chinese "Middle Ages", beginning with the Han dynasty; the preceding time of the Ch'in was considered as a period of transition, a time in which the feudal period of "Antiquity" came to a formal end and a new organization of society began to become visible.

Even those authors who do not accept a sociological cla.s.sification of periods and many authors who use Marxist categories, believe that with Ch'in and Han a new era in Chinese history began.

2 _Situation of the Hsiung-nu empire; its relation to the Han empire.

Incorporation of South China_

In the time of the Ch'in dynasty there had already come into unpleasant prominence north of the Chinese frontier the tribal union, then relatively small, of the Hsiung-nu. Since then, the Hsiung-nu empire had destroyed the federation of the Yueh-chih tribes (some of which seem to have been of Indo-European language stock) and incorporated their people into their own federation; they had conquered also the less well organized eastern pastoral tribes, the Tung-hu and thus had become a formidable power. Everything goes to show that it had close relations with the territories of northern China. Many Chinese seem to have migrated to the Hsiung-nu empire, where they were welcome as artisans and probably also as farmers; but above all they were needed for the staffing of a new state administration. The scriveners in the newly introduced state secretariat were Chinese and wrote Chinese, for at that time the Hsiung-nu apparently had no written language. There were Chinese serving as administrators and court officials, and even as instructors in the army administration, teaching the art of warfare against non-nomads. But what was the purpose of all this? Mao Tun, the second ruler of the Hsiung-nu, and his first successors undoubtedly intended ultimately to conquer China, exactly as many other northern peoples after them planned to do, and a few of them did. The main purpose of this was always to bring large numbers of peasants under the rule of the nomad rulers and so to solve, once for all, the problem of the provision of additional winter food. Everything that was needed, and everything that seemed to be worth trying to get as they grew more civilized, would thus be obtained better and more regularly than by raids or by tedious commercial negotiations. But if China was to be conquered and ruled there must exist a state organization of equal authority to hers; the Hsiung-nu ruler must himself come forward as Son of Heaven and develop a court ceremonial similar to that of a Chinese emperor. Thus the basis of the organization of the Hsiung-nu state lay in its rivalry with the neighbouring China; but the details naturally corresponded to the special nature of the Hsiung-nu social system. The young Hsiung-nu feudal state differed from the ancient Chinese feudal state not only in depending on a nomad economy with only supplementary agriculture, but also in possessing, in addition to a whole cla.s.s of n.o.bility and another of commoners, a stratum of slavery to be a.n.a.lysed further below. Similar to the Chou state, the Hsiung-nu state contained, especially around the ruler, an element of court bureaucracy which, however, never developed far enough to replace the basically feudal character of administration.

Thus Kao Tsu was faced in Mao Tun not with a mere nomad chieftain but with the most dangerous of enemies, and Kao Tsu's policy had to be directed to preventing any interference of the Hsiung-nu in North Chinese affairs, and above all to preventing alliances between Hsiung-nu and Chinese. Hsiung-nu alone, with their technique of hors.e.m.e.n's warfare, would scarcely have been equal to the permanent conquest of the fortified towns of the north and the Great Wall, although they controlled a population which may have been in excess of 2,000,000 people. But they might have succeeded with Chinese aid. Actually a Chinese opponent of Kao Tsu had already come to terms with Mao Tun, and in 200 B.C. Kao Tsu was very near suffering disaster in northern Shansi, as a result of which China would have come under the rule of the Hsiung-nu. But it did not come to that, and Mao Tun made no further attempt, although the opportunity came several times. Apparently the policy adopted by his court was not imperialistic but national, in the uncorrupted sense of the word. It was realized that a country so thickly populated as China could only be administered from a centre within China. The Hsiung-nu would thus have had to abandon their home territory and rule in China itself. That would have meant abandoning the flocks, abandoning nomad life, and turning into Chinese. The main supporters of the national policy, the first principle of which was loyalty to the old ways of life, seem to have been the tribal chieftains. Mao Tun fell in with their view, and the Hsiung-nu maintained their state as long as they adhered to that principle--for some seven hundred years. Other nomad peoples, Toba, Mongols, and Manchus, followed the opposite policy, and before long they were caught in the mechanism of the much more highly developed Chinese economy and culture, and each of them disappeared from the political scene in the course of a century or so.

The national line of policy of the Hsiung-nu did not at all mean an end of hostilities and raids on Chinese territory, so that Kao Tsu declared himself ready to give the Hsiung-nu the foodstuffs and clothing materials they needed if they would make an end of their raids. A treaty to this effect was concluded, and sealed by the marriage of a Chinese princess with Mao Tun. This was the first international treaty in the Far East between two independent powers mutually recognized as equals, and the forms of international diplomacy developed in this time remained the standard forms for the next thousand years. The agreement was renewed at the accession of each new ruler, but was never adhered to entirely by either side. The needs of the Hsiung-nu increased with the expansion of their empire and the growing luxury of their court; the Chinese, on the other hand, wanted to give as little as possible, and no doubt they did all they could to cheat the Hsiung-nu. Thus, in spite of the treaties the Hsiung-nu raids went on. With China's progressive consolidation, the voluntary immigration of Chinese into the Hsiung-nu empire came to an end, and the Hsiung-nu actually began to kidnap Chinese subjects. These were the main features of the relations between Chinese and Hsiung-nu almost until 100 B.C.

In the extreme south, around the present-day Canton, another independent empire had been formed in the years of transition, under the leadership of a Chinese. The narrow basis of this realm was no doubt provided by the trading colonies, but the indigenous population of Yueh tribes was insufficiently civilized for the building up of a state that could have maintained itself against China. Kao Tsu sent a diplomatic mission to the ruler of this state, and invited him to place himself under Chinese suzerainty (196 B.C.). The ruler realized that he could offer no serious resistance, while the existing circ.u.mstances guaranteed him virtual independence and he yielded to Kao Tsu without a struggle.

3 _Brief feudal reaction. Consolidation of the gentry_

Kao Tsu died in 195 B.C. From then to 179 the actual ruler was his widow, the empress Lu, while children were officially styled emperors.

The empress tried to remove all the representatives of the emperor's family and to replace them with members of her own family. To secure her position she revived the feudal system, but she met with strong resistance from the dynasty and its supporters who already belonged in many cases to the new gentry, and who did not want to find their position jeopardized by the creation of new feudal lords.

On the death of the empress her opponents rose, under the leadership of Kao Tsu's family. Every member of the empress's family was exterminated, and a son of Kao Tsu, known later under the name of Wen Ti (Emperor Wen), came to the throne. He reigned from 179 to 157 B.C. Under him there were still many fiefs, but with the limitation which the emperor Kao Tsu had laid down shortly before his death: only members of the imperial family should receive fiefs, to which the t.i.tle of King was attached. Thus all the more important fiefs were in the hands of the imperial family, though this did not mean that rivalries came to an end.

On the whole Wen Ti's period of rule pa.s.sed in comparative peace. For the first time since the beginning of Chinese history, great areas of continuous territory were under unified rule, without unending internal warfare such as had existed under Shih Huang-ti and Kao Tsu. The creation of so extensive a region of peace produced great economic advance. The burdens that had lain on the peasant population were reduced, especially since under Wen Ti the court was very frugal. The population grew and cultivated fresh land, so that production increased and with it the exchange of goods. The most outstanding sign of this was the abandonment of restrictions on the minting of copper coin, in order to prevent deflation through insufficiency of payment media. As a consequence more taxes were brought in, partly in kind, partly in coin, and this increased the power of the central government. The new gentry streamed into the towns, their standard of living rose, and they made themselves more and more into a cla.s.s apart from the general population.

As people free from material cares, they were able to devote themselves to scholarship. They went back to the old writings and studied them once more. They even began to identify themselves with the n.o.bles of feudal times, to adopt the rules of good behaviour and the ceremonial described in the Confucianist books, and very gradually, as time went on, to make these their textbooks of good form. From this point the Confucianist ideals first began to penetrate the official cla.s.s recruited from the gentry, and then the state organization itself. It was expected that an official should be versed in Confucianism, and schools were set up for Confucianist education. Around 100 B.C. this led to the introduction of the examination system, which gradually became the one method of selection of new officials. The system underwent many changes, but remained in operation in principle until 1904. The object of the examinations was not to test job efficiency but command of the ideals of the gentry and knowledge of the literature inculcating them: this was regarded as sufficient qualification for any position in the service of the state.

In theory this path to training of character and to admission to the state service was open to every "respectable" citizen. Of the traditional four "cla.s.ses" of Chinese society, only the first two, officials (_shih_) and farmers (_nung_) were always regarded as fully "respectable" (_liang-min_). Members of the other two cla.s.ses, artisans (_kung_) and merchants (_shang_), were under numerous restrictions.

Below these were cla.s.ses of "lowly people" (_ch'ien-min_) and below these the slaves which were not part of society proper. The privileges and obligations of these categories were soon legally fixed. In practice, during the first thousand years of the existence of the examination system no peasant had a chance to become an official by means of the examinations. In the Han period the provincial officials had to propose suitable young persons for examination, and so for admission to the state service, as was already mentioned. In addition, schools had been inst.i.tuted for the sons of officials; it is interesting to note that there were, again and again, complaints about the low level of instruction in these schools. Nevertheless, through these schools all sons of officials, whatever their capacity or lack of capacity, could become officials in their turn. In spite of its weaknesses, the system had its good side. It inoculated a cla.s.s of people with ideals that were unquestionably of high ethical value. The Confucian moral system gave a Chinese official or any member of the gentry a spiritual att.i.tude and an outward bearing which in their best representatives has always commanded respect, an integrity that has always preserved its possessors, and in consequence Chinese society as a whole, from moral collapse, from spiritual nihilism, and has thus contributed to the preservation of Chinese cultural values in spite of all foreign conquerors.

In the time of Wen Ti and especially of his successors, the revival at court of the Confucianist ritual and of the earlier Heaven-worship proceeded steadily. The sacrifices supposed to have been performed in ancient times, the ritual supposed to have been prescribed for the emperor in the past, all this was reintroduced. Obviously much of it was spurious: much of the old texts had been lost, and when fragments were found they were arbitrarily completed. Moreover, the old writing was difficult to read and difficult to understand; thus various things were read into the texts without justification. The new Confucians who came forward as experts in the moral code were very different men from their predecessors; above all, like all their contemporaries, they were strongly influenced by the shamanistic magic that had developed in the Ch'in period.

Wen Ti's reign had brought economic advance and prosperity; intellectually it had been a period of renaissance, but like every such period it did not simply resuscitate what was old, but filled the ancient moulds with an entirely new content. Socially the period had witnessed the consolidation of the new upper cla.s.s, the gentry, who copied the mode of life of the old n.o.bility. This is seen most clearly in the field of law. In the time of the Legalists the first steps had been taken in the codification of the criminal law. They clearly intended these laws to serve equally for all cla.s.ses of the people. The Ch'in code which was supposedly Li K'uei's code, was used in the Han period, and was extensively elaborated by Siao Ho (died 193 B.C.) and others. This code consisted of two volumes of the chief laws for grave cases, one of mixed laws for the less serious cases, and six volumes on the imposition of penalties. In the Han period "decisions" were added, so that about A.D. 200 the code had grown to 26,272 paragraphs with over 17,000,000 words. The collection then consisted of 960 volumes. This colossal code has been continually revised, abbreviated, or expanded, and under its last name of "Collected Statues of the Manchu Dynasty" it retained its validity down to the present century.

Alongside this collection there was another book that came to be regarded and used as a book of precedences. The great Confucianist philosopher Tung Chung-shu (179-104 B.C.), a firm supporter of the ideology of the new gentry cla.s.s, declared that the cla.s.sic Confucianist writings, and especially the book _Ch'un-ch'iu_, "Annals of Spring and Autumn", attributed to Confucius himself, were essentially books of legal decisions. They contained "cases" and Confucius's decisions of them. Consequently any case at law that might arise could be decided by a.n.a.logy with the cases contained in "Annals of Spring and Autumn". Only an educated person, of course, a member of the gentry, could claim that his action should be judged by the decisions of Confucius and not by the code compiled for the common people, for Confucius had expressly stated that his rules were intended only for the upper cla.s.s. Thus, right down to modern times an educated person could be judged under regulations different from those applicable to the common people, or if judged on the basis of the laws, he had to expect a special treatment. The principle of the "equality before the law" which the Legalists had advocated and which fitted well into the absolutistic, totalitarian system of the Ch'in, had been attacked by the feudal n.o.bility at that time and was attacked by the new gentry of the Han time. Legalist thinking remained an important undercurrent for many centuries to come, but application of the equalitarian principle was from now on never seriously considered.

Against the growing influence of the officials belonging to the gentry there came a last reaction. It came as a reply to the attempt of a representative of the gentry to deprive the feudal princes of the whole of their power. In the time of Wen Ti's successor a number of feudal kings formed an alliance against the emperor, and even invited the Hsiung-nu to join them. The Hsiung-nu did not do so, because they saw that the rising had no prospect of success, and it was quelled. After that the feudal princes were steadily deprived of rights. They were divided into two cla.s.ses, and only privileged ones were permitted to live in the capital, the others being required to remain in their domains. At first, the area was controlled by a "minister" of the prince, an official of the state; later the area remained under normal administration and the feudal prince kept only an empty t.i.tle; the tax income of a certain number of families of an area was a.s.signed to him and transmitted to him by normal administrative channels. Often, the number of a.s.signed families was fictional in that the actual income was from far fewer families. This system differs from the Near Eastern system in which also no actual enforcement took place, but where deserving men were granted the right to collect themselves the taxes of a certain area with certain numbers of families.

Soon after this the whole government was given the shape which it continued to have until A.D. 220, and which formed the point of departure for all later forms of government. At the head of the state was the emperor, in theory the holder of absolute power in the state restricted only by his responsibility towards "Heaven", i.e. he had to follow and to enforce the basic rules of morality, otherwise "Heaven"

would withdraw its "mandate", the legitimation of the emperor's rule, and would indicate this withdrawal by sending natural catastrophes. Time and again we find emperors publicly accusing themselves for their faults when such catastrophes occurred; and to draw the emperor's attention to actual or made-up calamities or celestial irregularities was one way to criticize an emperor and to force him to change his behaviour. There are two other indications which show that Chinese emperors--excepting a few individual cases--at least in the first ten centuries of gentry society were not despots: it can be proved that in some fields the responsibility for governmental action did not lie with the emperor but with some of his ministers. Secondly, the emperor was bound by the law code: he could not change it nor abolish it. We know of cases in which the ruler disregarded the code, but then tried to "defend" his arbitrary action. Each new dynasty developed a new law code, usually changing only details of the punishment, not the basic regulations. Rulers could issue additional "regulations", but these, too, had to be in the spirit of the general code and the existing moral norms. This situation has some similarity to the situation in Muslim countries. At the ruler's side were three counsellors who had, however, no active functions. The real conduct of policy lay in the hands of the "chancellor", or of one of the "nine ministers". Unlike the practice with which we are familiar in the West, the activities of the ministries (one of them being the court secretariat) were concerned primarily with the imperial palace. As, however, the court secretariat, one of the nine ministries, was at the same time a sort of imperial statistical office, in which all economic, financial, and military statistical material was a.s.sembled, decisions on issues of critical importance for the whole country could and did come from it. The court, through the Ministry of Supplies, operated mines and workshops in the provinces and organized the labour service for public constructions. The court also controlled centrally the conscription for the general military service. Beside the ministries there was an extensive administration of the capital with its military guards. The various parts of the country, including the lands given as fiefs to princes, had a local administration, entirely independent of the central government and more or less elaborated according to their size. The regional administration was loosely a.s.sociated with the central government through a sort of primitive ministry of the interior, and similarly the Chinese representatives in the protectorates, that is to say the foreign states which had submitted to Chinese protective overlordship, were loosely united with a sort of foreign ministry in the central government. When a rising or a local war broke out, that was the affair of the officer of the region concerned. If the regional troops were insufficient, those of the adjoining regions were drawn upon; if even these were insufficient, a real "state of war" came into being; that is to say, the emperor appointed eight generals-in-chief, mobilized the imperial troops, and intervened. This imperial army then had authority over the regional and feudal troops, the troops of the protectorates, the guards of the capital, and those of the imperial palace. At the end of the war the imperial army was demobilized and the generals-in-chief were transferred to other posts.

In all this there gradually developed a division into civil and military administration. A number of regions would make up a province with a military governor, who was in a sense the representative of the imperial army, and who was supposed to come into activity only in the event of war.

This administration of the Han period lacked the tight organization that would make precise functioning possible. On the other hand, an extremely important inst.i.tution had already come into existence in a primitive form. As central statistical authority, the court secretariat had a special position within the ministries and supervised the administration of the other offices. Thus there existed alongside the executive a means of independent supervision of it, and the resulting rivalry enabled the emperor or the chancellor to detect and eliminate irregularities. Later, in the system of the T'ang period (A.D. 618-906), this inst.i.tution developed into an independent censorship, and the system was given a new form as a "State and Court Secretariat", in which the whole executive was comprised and unified. Towards the end of the T'ang period the permanent state of war necessitated the permanent commissioning of the imperial generals-in-chief and of the military governors, and as a result there came into existence a "Privy Council of State", which gradually took over functions of the executive. The system of administration in the Han and in the T'ang period is shown in the following table:

_Han epoch_ _T'ang epoch_

1. Emperor 1. Emperor

2. Three counsellors to the emperor 2. Three counsellors and three (with no active functions) a.s.sistants (with no active functions)

3. Eight supreme generals (only 3. Generals and Governors-General appointed in time of war) (only appointed in time of war; but in practice continuously in office)

4. --------------------------- 4. (a) State secretariat (1) Central secretariat (2) Secretariat of the Crown (3) Secretariat of the Palace and imperial historical commission (b) Emperor's Secretariat (1) Private Archives (2) Court Adjutants' Office (3) Harem administration

5. Court administration 5. Court administration (Ministries) (Ministries) (1) Ministry for state (1) Ministry for state sacrifices sacrifices (2) Ministry for imperial (2) Ministry for imperial coaches and horses coaches and horses (3) Ministry for justice at (3) Ministry for justice at court court (4) Ministry for receptions (4) Ministry for receptions (i.e. foreign affairs) (5) Ministry for ancestors' (5) Ministry for ancestors'

temples temples (6) Ministry for supplies to (6) Ministry for supplies to the court the court (7) Ministry for the harem (7) Economic and financial Ministry (8) Ministry for the palace (8) Ministry for the payment guards of salaries (9) Ministry for the court (9) Ministry for armament (state secretariat) and magazines

6. Administration of the 6. Administration of the capital: capital: (1) Crown prince's palace (1) Crown prince's palace (2) Security service for the (2) Palace guards and guards'

capital office (3) Capital administration: (3) Arms production department (a) Guards of the capital (b) Guards of the city gates (c) Building department (4) Labour service department (5) Building department (6) Transport department (7) Department for education (of sons of officials!)

7. Ministry of the Interior 7. Ministry of the Interior (Provincial administration) (Provincial administration)

8. Foreign Ministry 8. ---------------------------

9. Censorship (Audit council)

There is no denying that according to our standard this whole system was still elementary and "personal", that is to say, attached to the emperor's person--though it should not be overlooked that we ourselves are not yet far from a similar phase of development. To this day the t.i.tles of not a few of the highest officers of state--the Lord Privy Seal, for instance--recall that in the past their offices were conceived as concerned purely with the personal service of the monarch. In one point, however, the Han administrative set-up was quite modern: it already had a clear separation between the emperor's private treasury and the state treasury; laws determined which of the two received certain taxes and which had to make certain payments. This separation, which in Europe occurred not until the late Middle Ages, in China was abolished at the end of the Han Dynasty.

The picture changes considerably to the advantage of the Chinese as soon as we consider the provincial administration. The governor of a province, and each of his district officers or prefects, had a staff often of more than a hundred officials. These officials were drawn from the province or prefecture and from the personal friends of the administrator, and they were appointed by the governor or the prefect.

The staff was made up of officials responsible for communications with the central or provincial administration (private secretary, controller, finance officer), and a group of officials who carried on the actual local administration. There were departments for transport, finance, education, justice, medicine (hygiene), economic and military affairs, market control, and presents (which had to be made to the higher officials at the New Year and on other occasions). In addition to these offices, organized in a quite modern style, there was an office for advising the governor and another for drafting official doc.u.ments and letters.

The interesting feature of this system is that the provincial administration was _de facto_ independent of the central administration, and that the governor and even his prefects could rule like kings in their regions, appointing and discharging as they chose. This was a vestige of feudalism, but on the other hand it was a healthy check against excessive centralization. It is thanks to this system that even the collapse of the central power or the cutting off of a part of the empire did not bring the collapse of the country. In a remote frontier town like Tunhuang, on the border of Turkestan, the life of the local Chinese went on undisturbed whether communication with the capital was maintained or was broken through invasions by foreigners. The official sent from the centre would be liable at any time to be transferred elsewhere; and he had to depend on the practical knowledge of his subordinates, the members of the local families of the gentry. These officials had the local government in their hands, and carried on the administration of places like Tunhuang through a thousand years and more. The Hsin family, for instance, was living there in 50 B.C. and was still there in A.D. 950; and so were the Yin, Ling-hu, Li, and K'ang families.

All the officials of the various offices or Ministries were appointed under the state examination system, but they had no special professional training; only for the more important subordinate posts were there specialists, such as jurists, physicians, and so on. A change came towards the end of the T'ang period, when a Department of Commerce and Monopolies was set up; only specialists were appointed to it, and it was placed directly under the emperor. Except for this, any official could be transferred from any ministry to any other without regard to his experience.