军队国家化与政治民主化
（一九四六年一月十六日）
（猜一猜这是谁的讲话。谜底在文后。）
主席、各位先生：
和平建国方案是政治协商会议主题之一。这个方案包括两大项目：一是政治民主化，一是军队国家化。在讨论政治民主化时，曾注意到一面承认国民政府之领导，一面求得在国民政府基础上之改组，使之成为过渡时期的民主的政府。现在讨论军队国家化，原则也是一样：一面要承认抗战八年中间所有抗日武装的功绩与存在，一面要在此基础上整编为平时的国家军队。这是一件巨大的工作，政治协商会议各位先生乃至全国人民都应认真地切实地督促与协助此件工作之进行，务使其成功，而不致失败，使全国军队真地变为国家化的军队，没有一点敷衍。故我们对此议题，特提出几点意见。
第一，是军队国家化与政治民主化的问题。本人在报告停止军事冲突时，曾说明这两个问题的相互关系，不仅要平行前进，以达统一，而且要认识过去历史的发展。造成国内军队派系不同之现象，有其政治的历史原因。中共所领导的武装，是被逼而拿起武器来的。现在要所有军队国家化，我们非常同意。青年党的提案上说得很公道，要政治民主化与军队国家化双方同时实行，但对陈启天〔74〕先生关于提案的口头解释，我有点不同意，因为如果以为先有军队国家化，然后才能政治民主化，那么，今天协商的问题，将用什么方法来解决呢？政治协商会议，就是要平心静气来商讨，以达到政治民主化、军队国家化的目的。本会同人对于这一点如有共同认识，便易于解决问题。
第二，是军队国家化的标准问题。我们很同意青年党提案的意思，要军队不属于个人，不属于派系，不属于地方，而须属于整个国家，由代表国家的民主政权的机构来统率。这点，不但我们间绝无争论，而且完全同意。在此认识之下，本人还有一点申说，即军队也属于人民。军队是从人民来的，只有军队能真正保护人民利益，才能保护国家，才能保护民族。中山先生说革命之武力要与国民相结合，而且要成为国民之武力。现在的军队，无论其为国民党所领导，为共产党所领导，其根源都是从革命武力而来。但军队要属于人民，是最难做到的一件事。这种军队应该不是站在人民之上，而是人民的子弟兵，因为人民以其血汗所得来养兵，为的是保护自己，军队能够这样做，才真正是国家的军队、人民的军队。这是我在军队国家化的要求上认为很重要的一点。
第三，如何使军队国家化，这是本会今天要回答的课题，我们愿意提出几点办法：
一、同意成立委员会，执行整编全国军队的任务。委员会名称如何，没有问题，甚至于可考虑在宪政实施以前，军事委员会仍存在，而加以改组。不管哪种委员会，都应该包括各方面人士参加，像民主同盟提案所说之三种成分。这样才能使军队得到公平合理的整编。不但如此，在过渡时期，军事委员会之附属机关如军令部、军政部等等，都应该改组，都应该有各方民主分子参加。因为有武装的人，不少成见很深，界限极严，如无各方人士参加，难得公平解决问题。举例说，这几天各地冲突仍未停止，这是非常不幸的。本人与张岳军先生都很焦急，白天晚上，无时不在等候消息，恐怕事态扩大，发生乱子，对不住人民，且无以告慰盟邦。然而另一方就不同了，如军令部报告消息，一定要附说对方是虚构事实，这样解决问题就难得公道，所以把军委会附属机构加以改组，以利整编工作之进行，颇为必要。今天林次长〔75〕报告军队整编经过，使大家知道国家军队情形，那么，各方人士去各种军队机关参加实际工作，岂不是更为有益？如大家能够通力合作，足使军令军政达到真正的统一与改革。
二、同意全国整编与大量裁兵的原则。但这件事不能单靠纸上数字，必须见到实效。林次长报告政府计划全国军队减缩到九十个师，可是今天的整编会和去年不同，去年减缩以后，所减的兵补充其他单位缺额，余下的只是官佐。今年要从二百五十三个师整编到九十个步兵师，十个骑兵旅，也就是由三百八十万人减缩到一百八十万人，裁去二百万人，问题很大，工作至巨。而且还有游击部队、地方团队要裁减，伪军要解散，被裁散总数当不止二百万。被裁散之士兵，如何给以出路，不是容易解决的。林次长说要他们回到生产界中，固然很好，但必须尽速发展农业生产，以为被裁兵员开一条回乡的生路。讲到发展农业生产，首须实行农业改革，举办农村借贷，这些问题，都有关国家整个施政计划。就这一点看，要没有各方人士参加的全国整编委员会，以领导、决定、督促和检查各种计划的实行，整编工作是不能建立公平合理的制度，并很好地安排被裁兵员之生活的。过去之不公，偏于一方，已经成为举国的定论。我们要求在这个问题上，必须有所改革。
三、凡是抗日有功部队，应该一面承认，一面整编。在此原则之下，中共部队虽系一党领导，然为人民的武装，参加抗日，著有功绩。会谈纪要中政府答应对我们要求至少编为二十个师一点，在全部问题解决时，可以考虑，而且愿意先交三人小组讨论。这点我们没有异议，三人小组正在磋商进行办法。我们要与全国整编计划配合，整编为二十个师，而同时还要商定驻地，因为初步整编，总要有驻军区域。这个军队驻地，到宪政实施，全国部队整编完成达到了军队国家化的时候，当然可以随时调动。并且整编日期，也要和其他部队整编日期相配合，因为这是不能不有联系的。
四、同意青年党主张，用文人主管军政。军政机关原应隶属行政院，现在军政部主要属于军事委员会，而军事委员会是战时机构，又与行政院平行，今后既无战时状态，即应照民主政制，使军政仍属于行政院。我们更赞成在过渡期间，军政主管由国共两党以外的文人来担任，因两方都有军队，如此可以免掉偏袒一方的责备。
五、改革军队制度与教育问题。政府军队制度，可说一方面起源于黄埔练兵，另一方面不少从日本、德国学来。日本、德国的军队制度，已不适用于今天的民主国家，这只要参考美国的军队制度即可知道。中国今日的军队制度，应该以民主国家尤其是美国的军队制度为改革的榜样。唯有军队制度改革了，军队教育方可随之变动。故军队国家化，改变军队教育是一个大问题，因为各种军队经过长期的对立，这不仅两党的军队，即中央与地方系统，各个私人系统，也都有对立状态，遂致影响军队教育因人而异，因系而别。今天要统一军队，必须从改革教育着手。讲到军队教育，如果制度是民主的，三民主义的教育方针，自然没有争论了。一方面不去教反共的思想，一方面当然也不去教反国民党的思想，使军队第一个认识是属于国家，属于人民。同时改善军民关系、军政关系、官兵关系等等，也是非常重要的，应该使他们深切明了。所谓军民关系，现在军队教育对于这点错误甚多。重庆街上有一句口号叫：“军人第一”。“军人第一”这个意思，无论在平时或战时都不妥当。“军人第一”很容易使军人想到自己是超越人民的。在战时，说军事第一是应该的，说“军人第一”便会使军人与百姓之间发生问题，因为他是第一了，谁都应该听从他，于是“老子天下第一”的气概便出来了。照理，军民冲突，首先要责备军人，因为军人有枪，横行霸道十分容易，老百姓决不敢和他冲突。刚才陈启天先生说：“秀才遇到兵，有理说不清”。秀才也许还可以和他讲几句道理，如目不识丁的老百姓遇到兵，才真是说不清了。所以，改善军民关系这一点非常重要。至于军政关系，应该以政治军，不能以军治政。目前的事实不然，故须加以改革。讲到官兵及上下级关系，当然军队首先要求服从命令，遵守纪律，并划分等级，但同为国家服务，其义则一。我们看美国军队等级虽是很严，而平常生活则极其平等。这些都是军队教育与制度问题，我们须要大大改革。
六、地方治安应由地方的保安队或自卫队负责维持。国防部队可以自由调动，地方部队则属于地方，不必调动。人民自卫队的组织只要不脱离生产，就能自行解决给养，如此既可以节省国家经费，又可以使人民受到初步的军事教育，免了普遍兵役训练。在农村中，我们如能尽量减少民劳，使之用力于发展生产，总是好的。
七、我们非常同意军党分开。军队不应属于党，应属于国家，因此对于党与军队的界限，必须划分清楚。现在无论国民党或共产党，在这方面都还没有划清。对于军官训练，军队在办，政府在办，党也在办，中央训练团就是一个例子。过去是党国，不必再说，今后政府改组，就应把军党分开。
八、我们很同意现役军人不做行政官吏。军队既要整编，编余或退役军人，很可做政治活动或行政官吏，而现役军人，就不应再兼行政官吏。
九、我们提出在过渡期中一般军费支出，只能占国家总预算的百分之二十五，其余都应用于建设方面。至于复员整编费用，当然列入临时项目，由整编委员会或军事委员会计划，送改组后的政府核准。
十、关于伪军，根据林次长的报告，决心遣散伪军，意思很好。但要把六十多万伪军彻底解散，回到民间，总要有切实办法才能做到，否则还是会为害地方的。
十一、限期解除敌人武装。我们要消弭内战，一定要迅速解除敌人武装，并遣送其回国。现在既有了军事调处执行部，很希望它能彻底完成此事。
十二、关于外债问题。复员善后需要很大费用，借外债是不可免的事，但是借外债必须经过改组后的政府批准。外债的支出应该用在建设方面、复员方面，绝不能用来养兵以进行内战。
以上是我们关于军事改革方面所提出的十二项建议，同时声明这十二项应包括所有军队在内，没有任何例外。
周恩来。一九四六年。
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