Page 74 - 《社会》2022年第1期

盐制自由化改革的治理逻辑

outcomes in the system: the reform of Hedong caused the floods of Mongolian smuggling
groups， and was thus aborted eventually； while the reform of Huaibei helped
eliminating the potential danger of smuggling， and therefore achieved a more stable
institutional life. This difference was mainly due to the differences of the smuggling
profit and the vagrant population between the two places. Because of the price difference
prior to the reform， the liberalization gave a big boost to the profit margin of salt
smuggling in Hedong， while the opposite was true in Huaibei. This had led to a
significant increase of smuggling groups in one place and a decrease in another. After
the reign of Jiaqing， due to the intensified population pressure and social unrest，
homeless population gradually increased in Huaibei and so did the problem of salt
smuggling. Nevertheless， Huaibei’s liberalization policy was able to transform
smugglers into legitimate salt merchants， helped absorbing the unemployed， and
achieved good governance results， therefore not only did it last longer， but also realized
the systems diffusion. This paper examines the course of reform， analyzes the timing of
the key steps， and demonstrates the close interaction between the economic system and
the social governance in traditional society. The grave issues of social governance in the
first half of the 19th century profoundly influenced the reform direction of the salt system
in the Qing Dynasty.
Keywords：Salt Monopoly System，liberalizing reform，social governance

18—19 世纪，面对日益严峻的货币、漕运、盐业等问题，清朝官员
展开了一系列围绕国家经济政策的争论。 尽管思想资源截然不同，这些
官员与同时代西方的知识分子却在关心相似的议题， 即国家与市场的
关系。 19 世纪上半叶，官员中的放任主义者取得了短暂胜利，他们的主
张也在许多改革中得到贯彻（林满红，2011：238-241）。 其中，最具代表
性的是食盐运销的自由化改革。
清代的盐业实行以盐区为基础的国家专卖制。 根据食盐的产地和
销地，全国被划分为十一个盐区，每个盐区都有特定的盐场和销售范围。 1
在两淮、河东、长芦等主要盐区，食盐专卖的方式都是“官督商销”：政

1. 十一个盐区分别是：长芦、山东、两淮（包括淮南和淮北）、浙江、福建、广东、四川、云
南、河东、陕甘、奉天（赵尔巽，1977：3603-3604）。 盐场负责生产食盐，生产者主要是世袭
的灶户或雇佣工人。 政府主要对食盐的运输、销售环节进行管控。

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