본고는 淸末 이래 20세기 前半에 걸친 義賑의 추이를 살펴보았다. 특히 官賑과 義賑의 관계에 주목하였는데, 이는 ‘재해 거버넌스’의 관점에서 20세기 중국 재해구제의 특징적 면모를 밝혀보려는 의도였다. 淸末 ‘華北大旱災’는 官賑의 한계를 여실히 드러냈다. 반면에 민간에서는 재해구제와 관련된 새로운 시도와 경험이 축적되고 있었는데 이른바 ‘義賑’이다. 이후 義賑 활동은 계속되었고 淸末民初에 이르러 뚜렷한 풍조를 이루었다. 물론 義賑 이전에도 官賑의 자기장 안에 포섭되어 있는 소규모의 영세하고 지엽적인 민간구재활동은 있었으나, 義賑은 역사적으로 이것과 분명히 구분된다. 義賑은 근대중국의 사회·경제적 변화를 배경으로 지역적·계층적 폐쇄성을 극복하면서 국가적으로 활동범위를 확대하였고, 사회세력으로서 ‘官’에 대한 ‘자율성’을 확보하였으며, 운영체제의 합리성을 제고했다. 이러한 민간 義賑의 출현은 淸末 官賑의 쇠락을 보완하고 官賑과의 합작을 주도함으로써 재해구제시스템 자체의 변화, 즉 새로운 ‘재해 거버넌스’를 이끌어냈다는 점에서 상당한 의미가 있다. 1931년 여름 장강유역에 ‘전에 없던 대수재’가 발생했는데 이에 대한 중국사회의 대응도 ‘전에 없이’ 새롭고 효과적이었다. 이는 官賑과 義賑의 합작이 국가적 차원에서 매우 효율적으로 전개되었기 때문에 가능했다. 말하자면 淸末에 흥기한 義賑이 1931~32년까지 활력을 유지했다는 것인데 대표적인 機構가 上海籌募各省水災急賑會이었다. 急賑會는 광범위한 계층으로부터 성금을 효율적으로 모금하여 전국적으로 16省 3市에 걸쳐 구제활동을 전개하였다. 또한 官賑을 배제하고 민간에서 거두어 민간이 직접 처리하며, 효율적이고 투명한 절차와 규정을 적용하는 義賑의 기본 특성을 그대로 갖추었다. 뿐만 아니라 재해 현장에서는 ‘官義合賑’이 전형적으로 이루어졌다. 중앙 및 지방정부, 民間義賑 사이에 긴밀한 협조관계, 즉 조화로운 ‘재해 거버넌스’가 형성되었다. 1942년 여름에서 1943년 봄까지 河南省에 가뭄 피해가 극심하였다. ‘전쟁 상황’이어서 이재민들이 방치되었고 참상은 극에 달했다. 이에 국내외 언론의 적극적인 비판이 있었고, 이재민을 동정하는 국내외 여론은 국민정부에 큰 부담이 되었다. 국민정부는 긴급하게 구제조치를 취했으나 효과는 매우 제한적이었다. 이번에도 官賑이 부진하자 義賑이 보완했다. 당시 上海를 대표한 義賑機構는 “上海各界華北急賑會”이었다. 당시 上海는 汪精衛政權 치하에 있었으나 急賑會를 구성한 주요 인사들은 남경국민정부시기에 義賑을 주도해 왔던 인사들이었다. 당시는 重慶國民政府, 汪精衛政權, 日本軍, 上海의 전국적 義賑, 西安과 鄭州의 義賑 등이 서로 얽히고설킨 “官賑과 義賑의 혼재”가 특징적으로 나타났다. 중화인민공화국이 수립되고 1954년 長江 유역에 ‘特大洪水’가 발생했다. 인민정부는 나름 적극적으로 대응했고 비교적 효과도 보았는데 이는 건국 초기 선제적 수리사업과 신속한 구재체제의 구축 덕분이었다. 인민정부가 이렇게 적극적이었던 것은 혁명시기에 재해구제를 중시했던 경험과 관련이 깊다. 또한 재해구제는 ‘신정권’에 대한 정치적 지지를 강화하기 위한 ‘정치 프로젝트’이었다. ‘정치화된’ 재해구제의 실천을 통해 국가의 통제력이 기층사회에 넓고 깊게 침투하면서 ‘거버넌스’ 구조가 ‘국가화’되었고 이는 재해구제의 주체에 변화를 초래했다. 이제 국가권력에 독립적인 사회구호체계가 소멸했다. 淸末 이래 義賑과 官賑의 협력관계로 구성되어온 ‘재해 거버넌스’가 ‘義賑 없는 거버넌스’로 변모된 것이다.

This paper looked at the development of “Yizhen”(Charity Disaster Relief, 義賑) over the first half of the 20th century since the Late Qing. In particular, attention was paid to the collaborations between “Guanzhen(Government Disaster Relief, 官賑)” and “Yizhen”. This was intended to reveal the characteristic aspects of disaster relief in the 20th century from the perspective of ‘Disaster Governance.’ “The Great Drought Disaster in North China” of the Late Qing clearly revealed the limitations of Guanzhen. On the other hand, new attempts and experiences related to disaster relief were accumulating in the charity sector, which is so-called Yizhen. Since then, the Yizhen activity continued, and there was a distinct trend by the Late Qing Dynasty and Early Republic of China. Of course, even before Yizhen, there were small-scale and peripheral private relief activities covered in the magnetic field of Guanzhen, but Yizhen is clearly distinguished from this historically. Yizhen overcame regional and hierarchical closeness due to social and economic changes in modern China. It expanded its scope of activity throughout the country, secured ‘autonomy’ to the government as a social force, and it improved the rationality of the operating system. This emergence of private Yizhen is significant in that it has led to a change in the disaster relief system itself, that is, a new disaster governance, by supplementing the decline of Guanzhen in Late Qing. In the summer of 1931, an unprecedented major flood occurred in the Yangtze River basin, and Chinese society's response to this disaster was also new and effective unprecedented. This was possible because the collaboration between Guanzhen and Yizhen developed very efficiently at the national level. That means that Yizhen which was started in Late Qing, maintained vitality until 1931, and the representative organization was “Shanghai's Association for Planning Rapid Relief for Those Provinces Stricken by Flood(上海籌募各省水災急賑會).” This Association efficiently raised donations from a wide range of classes and carried out relief activities nationwide across the 16 Provinces and 3 Cites. In addition, it has the basic characteristics of Yizhen, which excludes Guanzhen and collects it from the private sector and processes it directly by the private sector, and applies efficient and transparent procedures and regulations. In addition, “Collaboration Relief of Government and Charity(官義合賑)” was typically conducted at the scene of the disaster. A close cooperation relationship, that is, harmonious ‘disaster governance’, was formed between the central and local governments and nongovernmental Yizhen. From the summer of 1942 to the spring of 1943, drought damage was severe in Henan. The victims were neglected because it was a ‘war situation’, and the tragedy reached its peak. Accordingly, there was active criticism from domestic and foreign media, and domestic and foreign public opinion sympathizing with the victims was a great burden on the national government. The National Government urgently took relief measures, but the effect was very limited. As Guanzhen was sluggish again this time, Yizhen supplemented it. At that time, the Yizhen organization representing Shanghai was the “Shanghai Association for Rapid Relief of North China(上海各界華北急賑會).” Shanghai was under the “Wang Jingwei Regime(汪精衛政權)”, but the main figures that made up this Association were those who had led the Yizhen in the Nanjing National Government Period. “Chongqing National Government”, “Wang Jingwei Regime”, Japanese Army, Shanghai's national Yizhen, and Xian(西安) and Zhengzhou(鄭州)'s Yizhen intertwined with each other appeared. After the establishment of the People's Republic of China, “Catastrophic Flood(特大洪水)” occurred in Yangtze River basin in 1954. People's Government responded actively and had a relatively effective effect, thanks to preemptive repair projects and the rapid establishment of a relief system in the early days of its foundation. The fact that the People's Government was so active is deeply related to its experience of emphasizing disaster relief during the revolution. In addition, disaster relief was a ‘political project’ to strengthen political support for the New Regime. Through the practice of “politicalized” disaster relief, the ‘governance’ structure was ‘nationalized’ as the state's control penetrated widely and deeply into the underlying society, which led to a change in the subject of disaster relief. Now, the social relief system independent of state power has disappeared. Disaster governance, which has been composed of a collaboration between Yizhen and Guanzhen since the Late Qing, has been transformed into “Yizhenless governance”.

Yizhen(Charity Disaster Relief), Guanzhen(Government Disaster Relief), The Great Drought Disaster in North China, Shanghai's Association for Planning Rapid Relief for Those Provinces Stricken by Flood, Collaboration Relief of Government and Charity, Catastrophic Flood

義賑, 官賑, 丁戊奇荒, 上海籌募各省水災急賑會, 官義合賑, 特大洪水