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民国初年,各类政府和各种势力都曾进行过筹建基层民意机关的尝试。袁世凯颁布的有关条例,不仅严重削弱了基层民意机关的权力,而且对其如何构建也缺少法律规定;1919—1921年的北京政府所颁布的条例放宽了公民的选举资格,增设了参事会,从法律规定上提高了县议会的执行力;其他如湖南、山西、江苏、云南、浙江等省也都出台法规对基层民意机关有所涉及,但基本都不赋予其具体职权,也都没有筹建起来。只有以陈炯明为代表的革命党人所进行的探索最为突出,他所颁行的条例不仅扩大了选民范围,增强了民意机关的职权,更为可贵的是,他克服重重困难,把选举县长的纸上条文付诸实践,开创了中国历史上第一个直选县长的案例。
In the early years of the Republic of China, various kinds of government and various kinds of forces had tried to set up grass-roots public opinion organs. The relevant regulations promulgated by Yuan Shikai not only severely weakened the power of grass-roots public opinion organs but also lacks legal provisions on how to construct them. The regulations promulgated by the Beijing government from 1919 to 1921 relaxed the citizens’ eligibility for election and set up a council of councilors from The laws and regulations have increased the execution power of county councils; other provinces such as Hunan, Shanxi, Jiangsu, Yunnan and Zhejiang have also introduced laws and regulations that involve the public opinion organs at the grassroots level. However, they are generally not given specific powers and nor are they prepared to establish them . Only the explorations of the revolutionaries represented by Chen Jiongming are the most prominent. The regulations promulgated by him not only widen the scope of the voters but also enhance the authority of the public opinion organs. Even more valuable, he has overcome many difficulties and elected the county magistrate Papers on paper to put into practice, created the first case of direct election county magistrate in Chinese history.