國共戰爭中的國軍民眾工作──以「國防部人民服務總隊」為中心的探討

Civil Affairs in the Nationalist Army During the Chinese Civil War: A Case Study of the People Service Corps

本文以「國防部人民服務總隊」（1946-1949）為主要案例，兼述戡亂建工作總隊、綏靖總隊等特種工作隊的活動，探討國共內戰期間國軍政工人員剿共作戰地區的民眾工作，包含訪問民間疾苦、組織民眾、清查戶口、編組保甲、經營軍民合作、協助地方政府穩定秩序及建立地方政權等。本文認為，學界過去針對國共戰爭的研究，較少留意國軍政工人員的活動，對國民黨政府的民眾工作措施感到陌生。其實，國軍、共軍民眾工作之別，既非作為的有無，亦不盡然出於民眾是否支持，主要是規模大小，以及領導統一、動作協調、組織嚴密、作法細膩與否的差異。綜言之，國民黨政府、中共皆有其群眾基礎，或者發展群眾基礎的潛力，惟對各自群眾基礎的戰爭動員能力大不相同。中共一方，黨政軍相互配合，基層組織嚴密，能動員控制區內的全民，一體投入戰爭。反之，國民黨政府一方，黨政軍聯繫不切實，基層組織鬆散；軍隊分散資源扶植基層組織，而從事相關業務的政工人員尚經常陷入困境。於是政府統治區內，除若干已組訓的民眾成為戰爭動員對象外，廣大民力（含反共群眾）並未得到利用，甚至一部份（如難民）成為軍事的負擔。上述現象，即令不是國軍戰場失利的主要原因，仍可斷言是戰力此消彼長的重要關鍵。

This article uses the“People Service Corps of the Ministry of National Defense”(1946-1949) as a case study to investigate the civil affairs carried out by political officers of the Nationalist Army during the Chinese Civil War. In fact, both the Nationalist and Communist forces had their own models for civil affairs, but there were differences in terms of unified leadership, coordinated actions, organizational structure, and the sophistication of their methods. Additionally, the Nationalist government and the Communist Party had significantly different capabilities in mobilizing society for the war effort. On the Communist side, there was close coordination between the party, government, and military, allowing them to mobilize the entire population in their controlled areas, all working together for the war effort. In contrast, the Nationalist government had less effective coordination among these elements. As a result, in government-controlled areas, apart from a few well-trained civilians who were mobilized for the war effort, a significant portion of the population remained underutilized, and in some cases, became a burden on the military. While these factors may not have been the primary reasons for the Nationalist military’s battlefield losses, they can still be considered crucial in the overall fluctuation of military strength.