Beiyang government
The Beiyang government was the internationally recognized government of the Republic of China between 1912 and 1928, based in Beijing. It was dominated by the generals of the Beiyang Army, hence it its name.
Beiyang general Yuan Shikai gave Sun Yat-sen the military support he needed to establish the Republic of China in 1912. Through his control of the army, Yuan was quickly able to dominate the new Republic as its president. Although the government and the state were nominally under civilian control through the Republic's constitution, Yuan and his generals were effectively in charge of it. After Yuan's death in 1916, the army split into various warlord factions competing for power, leading to a period of civil war called the Warlord Era. Nevertheless, the government maintained its legitimacy among the great powers, receiving diplomatic recognition, foreign loans, and access to tax and customs revenue.
Its legitimacy was seriously challenged in 1917, by Sun Yat-sen's Guangzhou-based Kuomintang government movement. His successor Chiang Kai-shek defeated the Beiyang warlords during the Northern Expedition between 1926 and 1928, and overthrew the factions and the government, effectively unifying the country in 1928. The Kuomintang proceeded to install its nationalist government in Nanjing; China's political order became a one-party state, and the Kuomintang government subsequently received international recognition as the legitimate government of China.
Political system
Under the Provisional Constitution of the Republic of China, as drawn up by the provisional senate in February 1912, the National Assembly elected the president and vice president for five-year terms, and appointed a premier to choose and lead the cabinet. The relevant ministers had to countersign executive decrees for them to be binding. The most important ministries were army, finance, communications, and interior. The navy ministry's importance declined significantly after most of its ships defected to the South's Constitutional Protection Movement in 1917. The communications ministry was also responsible for transportation, mail, and the Bank of Communications and was the base of the influential Communications Clique. The interior ministry was responsible for policing and security while the weaker ministry of justice handled judicial affairs and prisons. The ministry of foreign affairs had a renowned diplomatic corps with figures such as Wellington Koo. Because the generals required their skills, the foreign affairs ministry was given substantial independence. The ministry's greatest accomplishment was the 1922 return of German concessions in Shandong that were seized by Japan during World War I, which greatly boosted the government's reputation. The foreign affairs ministry successfully denied the South's government of any international recognition all the way until the Beiyang government collapsed. China was a founding member of the League of Nations.The assembly was bicameral with a senate that had six-year terms divided into two classes and a house of representatives with three-year terms. The senators were chosen by the provincial assemblies and the representatives were chosen by an electoral college picked by a limited public franchise. The task of the assembly was to write a permanent constitution, draft legislation, approve the budget and treaties, ratify the cabinet, and impeach corrupt officials. An independent judiciary with a supreme court was also provided. Early law codes were based on reforming the Great Qing Legal Code into something akin to German civil law.
In reality, these institutions were undermined by strong personal and factional ties. Overall, the government was extremely corrupt, incompetent, and tyrannical. Most of the revenue was spent on the military forces of whichever faction was currently in power. The short-lived legislatures did have civilian cliques and debates, but were subject to bribery, forced resignations, or dissolution altogether.
During the Warlord Era, the government remained very unstable, with seven heads of state, five caretaker administrations, 34 heads of government, 25 cabinets, five parliaments, and four charters within the span of twelve years. It was near bankruptcy several times where a mere million dollars could decide the fate of the bureaucracy. Its income came primarily from the customs revenue, foreign loans, and government bonds, as it had difficulty collecting taxes outside the capital even if the surrounding regions were controlled by allied warlords. After the 1920 Zhili–Anhui War, no taxes were remitted to Beijing other than Zhili province.
History
Background
The origins of the Beiyang government lie in the aftermath of the First Sino-Japanese War of 1895, after which the defeated armies of the Qing dynasty instituted a series of military reforms known as the New Army reforms, headed by general Li Hongzhang. Among the regional armies that emerged from these reforms was the Beiyang Army, named such due to being primarily based in the Beiyang region. Commanded by general Yuan Shikai, the Beiyang Army grew to become the largest and most modernized of China's New Armies, and Yuan began to become a highly influential figure in the Qing government. In 1907, Yuan was appointed to the high positions of Grand Councillor and Secretary of Foreign Affairs, which he held until being relieved of both positions by Imperial Regent Prince Chun in 1909.Following the Wuchang Uprising in October 1911, after which the armies of the southern provinces rebelled against the Qing, Yuan Shikai was recalled to Beijing to command the Beiyang Army against the rebellion. The Qing became a constitutional monarchy, with Yuan Shikai holding the position of Prime Minister of the Imperial Cabinet. His cabinet was made up primarily of Han Chinese members, as opposed to Manchu who had traditionally comprised the Qing political elite. Fearing he would lose his administrative powers after his Beiyang Army suppressed the revolution, Yuan decided to come to a deal with the revolutionaries, and on 12 February 1912 he deposed the Xuantong Emperor, thus effectively abolishing the Qing dynasty.
Under Yuan Shikai (1912–1916)
After the Xinhai Revolution of 1911–1912, the rebels established a republican Provisional Government in Nanjing under President Sun Yat-sen and Vice President Li Yuanhong. Since they only controlled southern China, they had to negotiate with Yuan Shikai to put an end to the Qing dynasty. On 10 March 1912, Yuan became provisional president while located in Beijing, his power base. He refused to move to Nanjing, fearing further assassination attempts. It was also more economical to keep the existing Qing bureaucracy in Beijing, so the provisional senate moved north as well; the government thereby began its administration from Beijing on 10 October 1912.The 1912–1913 National Assembly elections gave over half the seats and control of both houses to Sun's Nationalist Party. The second-largest party, the Progressives led by Liang Qichao, generally favored Yuan. Song Jiaoren was expected to become the next premier, but he riled Yuan by promising to pick a cabinet with only KMT ministers. He was assassinated less than two weeks before the assembly convened. An investigation pinned the blame on Premier Zhao Bingjun, which suggested Yuan had played a part. Yuan denied that either he or Zhao killed Song, but the Nationalists remained unconvinced. Yuan then took out a huge foreign loan without parliament's consent. Sun led a faction of Nationalists against Yuan in a Second Revolution during the summer of 1913 but suffered complete defeat within two months.
Revival of the monarchy
In response to threats and bribes, parliament elected Yuan for a five-year term beginning on 10 October 1913. He then expelled the Nationalist legislators causing the assembly to lose quorum which forced it to adjourn. In 1914, a Constitutional Conference rigged in his favor produced the Constitutional Compact, which gave the presidency sweeping powers. The new legislature, the National Council, had the power to impeach him but Yuan also had the power to dismiss it at whim before any proceedings could take place. Still not satisfied, he reasoned that the Chinese people were used to autocratic rule and that he should seek to install himself as a new emperor. Yuan furthermore began participating in old Confucian rites connected to the monarchy.In 1915, Yuan crafted a monarchist movement which symbolically begged him to take to the throne. He would politely and humbly refuse each time until a special national convention of nearly two thousand delegates unanimously endorsed him. Yuan Shikai "reluctantly" accepted and was crowned Emperor of China.
Former Justice Minister Liang Qichao saw through the ruse and encouraged the Yunnan clique to rebel against Yuan, sparking the National Protection War. The war went badly for Yuan, as he faced almost universal opposition. Most of his lieutenants deserted him. In order to win them back he announced the end of the Empire of China on 22 March 1916. However, his enemies called for his resignation as president. In June, Yuan died of uremia, leaving a fractured republic in his wake.
Duan Qirui and the beginning of the Warlord Era (1916–1920)
succeeded Yuan as president on June 7. Due to his anti-monarchist stance in Nanjing, Feng Guozhang became vice president. Duan Qirui retained his position as premier. The original parliament elected in 1913 reconvened on August 1 and restored the provisional constitution. There were three factions in parliament now: Sun Yat-sen's Chinese Revolutionary Party, Liang Qichao's Constitution Research Clique, and Tang Hualong's Constitution Discussions Clique.The first order of business was the creation of a national army. This was problematic as the southerners reacted suspiciously in fear that they may be deprived of their commands to untrustworthy Beiyang generals. No progress was made on this issue.
The second issue was World War I. Premier Duan and Liang Qichao was in favor of entering the war on the Allied side. President Li and Sun Yat-sen were opposed. Duan managed to strongarm parliament into breaking ties with the German Empire. Li fired Duan when his secret loans from Japan were revealed. Duan denounced his removal as illegal and set up base in Tianjin. Most of the Beiyang generals sided with Duan and demanded the dissolution of parliament. In June 1917, General Zhang Xun offered to mediate and went to Beijing with his soldiers. Backed with German funds and arms, he occupied the capital and forced Li to dissolve parliament. On July 1, he shocked the country by restoring Puyi as emperor.
After escaping to the Japanese legation, Li reappointed Duan Qirui as premier and charged him with protecting the republic. Duan led an army that quickly defeated the Manchu Restoration. Li resigned as president and was succeeded by Feng Guozhang. Duan refused to restore parliament due to his unpleasant experiences with it in the past. He argued that his victory over the Manchu Restoration counted as a second Xinhai Revolution and set out to craft a new provisional senate which would draft the election rules for a new parliament; this senate cut the number of seats in the future parliament by nearly half.
His opponents, including President Feng, disagreed, claiming that, under Duan's argument, he should resign, as the position of premier could not exist independently from parliament. Sun Yat-sen and his followers moved to Guangzhou to set up a rival government under the Constitutional Protection Movement with the backing of the Yunnan clique and the Old Guangxi clique. A rump of the old parliament held an extraordinary session.
The Beiyang government declared war on the Central Powers in August 1917 and began sending labor battalions to France and a token force to Siberia. Duan took out large loans from Japan, claiming that he planned to build an army of a million men to send to Europe but his rivals knew this army would never leave the country: its true purpose was to crush internal dissent, since it existed outside the jurisdiction of the army ministry. Meanwhile, the war between the northern and southern governments led to a stalemate as neither side could defeat the other. Duan's favoritism in promoting relatives, friends and proteges to high positions in the military and government caused strong divisions within the Beiyang army. His followers became known as the Anhui clique. His detractors rallied around President Feng and formed the Zhili clique. The Zhili clique favored peaceful negotiations with the south while Duan wanted to conquer it. Duan resigned as premier due to the president's interference but his underlings pressured Feng to restore him.
The 1918 elections for the new parliament were rigged to favor Duan's Anfu Club which took three-fourths of the seats. The rest went to Liang Shiyi's Communications Clique, Liang Qichao's Research Clique, or to independents. Because President Feng was simply finishing the five-year term Yuan began in 1913, he was obliged to resign in October. Duan replaced his archrival with Xu Shichang as president, the closest to a normal transfer of power in this government's history. Duan promised Feng's ally, Cao Kun, the vice presidency but the Communications Clique and the Research Clique opposed it after newspapers reported that Cao lavished enormous amounts of money on a prostitute. They also preferred to give it to a figure in the renegade South as a token of reconciliation. However, no southerner took up the offer and this left the vice presidency vacant. This set up an enmity between Cao Kun and Duan. When Feng relinquished the presidency, Duan resigned his premiership. Duan, however, remained the country's most powerful man through his network in the government and military. Convening on 12 August, the new parliament spent much of its time trying to draft a new constitution to replace the 1912 provisional one and engaged in polemics against the rump old parliament in the south.
Image:Chinese protestors march against the Treaty of Versailles.jpg|thumb|left|Protests during the May Fourth Movement
In the 1919 Paris Peace Conference, Duan's ally, Cao Rulin, promised Japan all of Germany's concessions in Shandong. This sparked the May Fourth Movement which seriously weakened the Anhui clique's hold in government. Though the First World War had ended, the army Duan had created to send to the trenches was not disbanded. Instead, it was given to his deputy Xu Shuzheng to invade Outer Mongolia. This soured relations with Zhang Zuolin of Manchuria's Fengtian clique who considered such a large army bordering his territory as a threat. The Zhili clique demanded more influence in the government but in December Feng Guozhang died leaving the group momentarily leaderless. Cao Kun and Wu Peifu emerged as the leaders of the Zhili clique and they issued circular telegrams denouncing the Anhui clique. Cao and Zhang pressured the president to dismiss Xu Shuzheng. The president was already leaning against Duan for sabotaging his Shanghai peace talks with the South in 1919. Both Xu and Duan denounced the dismissal and promptly declared war on 6 July 1920. On July 14, the two sides clashed in the Zhili–Anhui War. Within a few days, the Anhui clique was defeated and Duan retired from the military. The new parliament was dissolved on August 30.