Matthew W. Mosca. From Frontier Policy to Foreign Policy: The
Question of India and the Transformation of Geopolitics in Qing
China. Stanford Stanford University Press, 2013. 408 pp. $60.00
(cloth), ISBN 978-0-8047-8224-1.
Reviewed by Richard J. Smith (Rice University)
Published on H-Diplo (July, 2013)
Commissioned by Seth Offenbach
Matthew W. Mosca has made a graceful and substantial contribution to
our understanding not only of late imperial China (the expansive and
multicultural Qing Empire in particular) but also of Inner Asian
politics, the growth of "British" India, and the nature of global
interactions during the period from 1750 to 1860. His basic interest
is in the way that China's rulers, officials, and scholars
interpreted the rising power of the British in India, and how their
understanding of the unfolding geopolitical situation on China's
remote southwestern borders influenced Qing policymaking. In the
process, he traces, as the title of his book suggests, the
transformation of China's "frontier policy"--one based on "regionally
specific" political and military strategies--into a genuine "foreign
policy," predicated on the idea of "a single hierarchy of imperial
interests framed in reference to a unified outside world" (pp. 2-3).
Ultimately, the author argues that "this shift in outlook led to a
revolution in how Qing rulers and subjects perceived their position:
no longer unique, the Qing empire became one among several large
entities locked in [international] competition" (p. 3). One may
question, however, how truly "revolutionary" this transformation
was--especially since the author's chronological framework ends at a
point where China's engagement with "modern" Western diplomacy had
just begun. From that time onward, it seems to me, there remained
significant vestiges of a "frontier" mentality on the part of many
Qing officials and even some "progressive" scholars. Perhaps the
subtitle of Mosca's conclusion--"Between Frontier Policy and Foreign
Policy"--would be a more apt description of the period covered by his
book than the actual title. Still, there can be no question that
significant changes took place during the time under discussion, and
these changes had important implications for China's foreign
relations throughout the remainder of the Qing period.
Mosca's introduction lays out with admirable clarity the
historiographical and interpretive issues that frame his study. He
addresses, for example, the debate surrounding the idea of a Chinese
"tributary system," as well as the question of the degree to which
the vast Qing Empire was truly integrated. Mosca's approach to these
issues, based on a careful analysis of Chinese policy toward British
India from the mid-eighteenth to the mid-nineteenth century, involves
judicious compromises between contending poles of scholarship.
With respect to the tributary system, for instance, he shows that in
most spheres of Qing policy toward India the formalized features and
ritual procedures associated with tribute giving had little to do
with either the decisions that were made or the actions that were
taken. But he also recognizes that tributary relationships were not
entirely irrelevant to the conduct of Qing foreign relations. His
discussion of the Anglo-Nepal War of 1814-16 sheds important light on
the way the tributary system often worked in practice, with each
party attempting to use the formalized relationship to its own
advantage.
At this particular time, the Gurkhas, as rulers of Nepal and
tributaries of the Qing, were threatened not only by the British but
also by a tribal group known as the Pileng people. The Gurkhas,
viewing their relationship to the Qing in terms of a strategic
alliance, sought assistance from the Jiaqing emperor against both
adversaries. The Qing government, however, did not credit the claims
of the Gurkhas and refused to help. In fact, the Jiaqing emperor
rebuked the Gurkhas for their narrow self-interest and their apparent
deceit, informing them that failure to deliver their tributary
products on time would be considered "treason" (_beipan_). In short,
from the Qing government's standpoint, tribute was exclusively
bilateral. As long as it was submitted on schedule, "the Qing
[rulers] would neither constrain their agreements with other states
nor [necessarily] support them in their quarrels" (p. 179). To be
sure, there were occasions when the Chinese state gave substantial
military assistance to its tributaries (notably to Korea in the late
sixteenth century), but it did so almost exclusively in defense of
its own strategic interests.
As to the issue of the degree to which the Qing Empire was
"integrated," Mosca argues that "before 1800, the Qing realm was an
amalgamation of diverse conquered peoples united by common
subordination to the same ruling house. Although the emperor and a
small cohort of high advisers had a panoramic view over the entire
domain, on the ground the administration of different regions relied
heavily on indigenous power holders following their local political
traditions" (p. 3). But around 1800, as the capabilities of the
imperial court began to diminish, networks of Han Chinese literati
(as opposed to Qing bureaucrats) eventually produced a relatively
coherent vision of the threat posed by European imperialism. They
also devised a more or less coordinated strategy for dealing with it.
Mosco's first chapter 1 ("A Wealth of Indias: India in Qing
Geographic Practice") demonstrates vividly that information about the
world beyond China's borders was abundant but extremely varied in
quality. It is not quite correct to assert (as the author does,
probably for rhetorical effect) that in the early Qing, "Chinese
geographers had too much information about the outside world" (p.
26). It is perhaps more accurate to say that they had too much _bad_
information about the outside world, and they lacked mechanisms by
which to sort it out effectively. This produced what Mosca calls
"geographic agnosticism"--the idea that "some claims [about the
outside world] might be preferred and others doubted, but none could
be absolutely endorsed or eliminated" (p. 26).
The author goes on to recount some of the problems and confusions
that this situation produced for Qing policymakers.
One of the main
difficulties was a lack of consistency in the transliteration of
foreign names. In the absence of any clear conventions, and
complicated by the problem of several different dialects (for an
example in Western transliteration, compare Beijing [Mandarin
pronunciation] and Peking [Cantonese pronunciation]), there might be
any number of names for the same place. "India," variously rendered
as Tianzhu, Shendu, Yindu, Xindu, Xindusi, Yingdiya, etc., is a case
in point. Traditional Chinese mapmaking produced similar problems.
Although Chinese cartographers were capable of making mathematically
precise renderings of space, a great number of different types of
maps circulated in Qing times, many produced for reasons that had
little to do with calibrating precise distances or conveying accurate
proportions.
Chapter 2 ("The Conquest of Xinjiang and the Emergence of
'Hindustan,' 1756-1790") does a splendid job of recounting and
explaining Qing political and military policy in Central Asia at a
time that coincided, more or less, with the decline of the Mughal
Empire (conventional dates: 1526-1857). Mosca's discussion is
extraordinarily nuanced and, as with several other sections of the
book, it is not designed for people who describe themselves as "not
good with names." In addition to detailing military operations and
diplomatic negotiations, Mosca explains--both in this chapter and the
next ("Mapping India: Geographic Agnosticism in a Cartographic
Context")--
why it was that, despite the Qianlong emperor's earnest
efforts to acquire and "synthesize" knowledge of India during the
course of his campaigns in Xinjiang (the "New Territory"), the Qing
court failed to achieve a meaningful degree of data coordination. As
Mosca puts it: "the centrifugal force of an influx of new terminology
and information overpowered even the centripetal pull of the court's
ordering efforts" (p. 70).
The great achievement of chapter 3 is its cogent analysis of the vast
surveying projects undertaken by the Qing court under the Kangxi,
Yongzheng, and Qianlong emperors. This discussion, which emphasizes
the understudied mapping projects of the Yongzheng reign, nicely
complements the cartographically oriented work of scholars such as
Laura Hostetler (_Qing Colonial Enterprise, Ethnography and
Cartography in Early Modern China_ [2001]). It also indicates with
new research both the achievements and the limitations of the Jesuit
missionaries who were employed as technicians by the Qing court.
A
point of particular interest in this chapter is the way that certain
inherited assumptions about the shape of the Chinese Empire--Tibet in
particular--influenced maps of India. Mosca asks and answers: "would
the imperially approved image of Tibet, made by trusted Qing
surveyors, yield to the latest European data? It would not" (p. 115).
Chapter 4 ("Discovering the 'Pileng': British India Seen from Tibet,
1790-1800") describes the place of Tibet in Chinese strategic
calculations at a time (the 1760s) when the British "began to eye the
Himalayas as a potential route of trade with China" (p. 129).
Here we
see how the Qing government's decisive conquest of the Junghars (aka
Dzungars), which took place from 1755 to 1759, lured the Manchus into
a false sense of security. As Mosca indicates in his introduction,
"Qing policy diverged from that of its neighbors, ultimately at great
cost to its security." Why? Because after this resounding victory,
the Manchus "had a completely different perception of prevailing
geopolitical dynamics and the extent of foreign threats" (p. 9). One
of the most interesting sections in chapter 4 is Mosca's analysis of
the possible influence of the Gurkha Wars (1788-93) on the outcome of
the famous mission of Lord George Macartney to China in 1793-94.
Although the evidence is both ambiguous and contradictory, it is
possible that Lord Macartney was at least partially correct in
surmising that the negative Qing reaction to his embassy "was
conditioned by the court's knowledge of British power in India" (p.
150).
Although virtually every page of Mosca's book brings new information
to light, and in many of these pages we find sharp and valuable
insights, chapters 5 ("British India and Qing Strategic Thought in
the Early Nineteenth Century") and 6 ("The Discovery of British India
on the Chinese Coast, 1800-1838") seem particularly fresh and
illuminating. In them, Mosca examines the dramatic rise of British
power in Asia from three perspectives: the eastern seacoast, Tibet,
and Xinjiang. In the case of the China coast, Great Britain's
presence in the early nineteenth century was not only economic (as is
well known), but also military (for example, the British made two
attempts to occupy the Portuguese port of Macao). And yet, as Mosca
points out, officials in south China, including the strategically
important area of Guangzhou (aka Canton), had little interest in
learning about British India.
Meanwhile, on the Tibetan frontier, as discussed earlier, the Qing
government evinced no real concern with the British role in the
Anglo-Nepal War, and felt "no moral or strategic need to defend the
Gurkha regime by force," despite its tributary status (p. 184). The
same was true for Central Asia (Xinjiang), despite British efforts to
extend their influence into the area (for example, the so-called
Moorcroft Expedition). Mosca concludes: "Seen in Eurasian
perspective, the most striking feature of official Qing strategic
thought between 1790 and the 1830s is that it remained unaltered by
the rise of British power in Asia" (p. 191). The author ascribes this
situation less to inadequate intelligence gathering than to a lack of
centralization in the process.
Chapter 6, which more or less parallels chapter 5 chronologically,
shifts the focus of inquiry from official policies and procedures to
the new role assumed by Han literati after 1800.
Here we see evidence
of the emerging "private" study of India on the maritime frontier.
Many of the names are familiar to students of nineteenth-century
Chinese history--Ruan Yuan, Chen Lunjiong, Li Zhaoluo, Li Mingche,
and Bao Shichen--but many are not, including figures such as Yan
Ruyi, Xie Qinggao, Yi Kezhong, and Xiao Lingyu. In any event, Mosca
sheds new light on their ideas and influence. Taken together the
writings of these scholars "began to corrode the three major pillars
of the frontier policy"--the uncritical accumulation of local data,
the loose link between geographic research and strategic policy
proposals, and the tendency to focus on individual cases or "units of
responsibility" rather than a broader perspective (pp. 232, 233).
Chapter 7 ("The Opium War and the British Empire, 1839-1842"), like
chapter 6, covers familiar territory, but again presents new
perspectives. Here, Commissioner Lin Zexu naturally looms large, but
the emphasis, to a much greater extent than in previous
Western-language studies of the man, is on the remarkable and
previously underappreciated mechanisms of intelligence gathering
during the first Opium War. Of particular interest in this chapter is
the author's description of Commissioner Lin's efforts to acquire
information from China's southern and western frontiers.
"By 1842,"
Mosca writes, "lines of intelligence gathering using multiple sources
in different places had underscored India's key role in British
power" (p. 269). And yet within the Qing bureaucracy, the empire's
strategic position was still seen through the prism of frontier
policy.
Chapter 8 ("The Emergence of a Foreign Policy: Wei Yuan and the
Reinterpretation of India in Qing Strategic Thought, 1842-1860")
revisits the much-studied career of Wei Yuan (1794-1856) and his
famous book, _Haiguo tuzhi_ (Illustrated treatise on the maritime
kingdoms (1844). Here, too, Mosca makes a valuable contribution by
focusing in particular on Wei's analysis of British India, and the
problems he faced in deciphering and correlating vast amounts of
geographical and other data for his book. Mosca also sheds useful
light on such individuals as Wei's collaborator and fellow
researcher, Yao Ying, who assisted in intelligence gathering in
Tibet.
In placing Wei in broader perspective, Mosca points out that "a cause
and consequence of Wei's geographic achievement [the _Haiguo tuzhi_]
was a growing rapprochement between text and map" (pp. 279-280).
Indeed, his work marked a "watershed" in the history of Qing
geographic research on the "outside world" because it "succeeded in
bringing into dialogue elements from virtually all geographic
traditions within the Qing empire" (p. 285). And on the basis of his
careful research,
Wei devised a foreign policy that "put him on
common ground with at least some Russian, Nepali and British
geo-strategists" (p. 301). This policy, as Mosca convincingly
demonstrates, did not involve any of the traditional "ideological
ties binding tributary states to the Qing emperor" (p. 302).
As indicated above, I believe that Mosca has somewhat overstated the
degree to which, by the mid-nineteenth century, "multiple sources of
intelligence, once virtually incommensurable, were now coordinated
and interpreted with relative ease even if certain details remained
problematic" (pp. 308-309). It is true, of course, that the conduct
of Qing foreign relations became increasingly coordinated after 1860,
"buttressed by new institutions" (such as the Zongli Yamen, a
proto-foreign office created in 1861 as a subcommittee of the Grand
Council) (p. 309). We should remember, however, that the Zongli Yamen
was an ad hoc institution essentially forced upon the Qing government
by the Conventions of Beijing (1860), which mandated official
diplomatic representation at the Chinese capital.
Moreover, the
presence in Beijing of foreign diplomats (such as Frederick Bruce)
and foreign advisers (such as Robert Hart) during the remainder of
the Qing period did much to shape official Chinese perceptions of the
world.
Mosca ends his book with a number of useful research suggestions, one
of which is a plea for further investigations into "the way
information circulation had a differential impact on various groups
within the Qing empire between 1860 and 1911 as they interpreted how
external trends impinged upon the continued viability of its internal
political order" (p. 310). This sort of research, if carried out as
carefully and creatively as Mosca has done, would be most welcome
indeed.
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