辛亥鼎革之际，清朝中央与地方权力关系已演变为“内外皆轻” 的权力格局，是清末新政时期清廷中央集权对地方督抚收权的结果。关于“权力流向” 问题， 在清末民初从君主专制走向民主共和的制度变迁与重建的过程中，清政府的统治权力经由南京临时政府与南京临时参议院，最终转移到袁世凯北洋集团。清末“内外皆轻” 权力格局对民初政治走向的重要影响， 是辛亥革命在清廷中央与地方督抚权威一并衰落之际爆发，以袁世凯为首的北洋集团乘势而动，从军人干政到军人主政，试图重建统治权威而未能奏效，政局分崩离析，导致民国初年的军阀政治。民初军阀不是清末地方督抚势力自然增长的延伸，而是掌握军队尤其是新军的新生势力的崛起。
Abstract
At the time of the political transition in 1911 power relationships had evolved in favor of the local governments，which was the logical result of the Qing Dynasty’s decentralization of political authority to the provincial governors during the New Policy Ｒeform． The political trends，from the autocratic monarchy of the late Qing to the process of institutional change and reconstruction of the democratic republic system，led to the transfer of the sovereignty of the Qing government to the Nanjing Provisional Government and from the Nanjing Provisional Senate eventually to the Northern Warlords Government． In general，the patterns of declining central government power had an important influence on the political trends in the early Ｒepublic of China． This included the outbreak of the Ｒevolution of 1911 when the authority of the Qing Empire declined relative to the local governments，and the transformation of the Peiyang Clique headed by Yuan Shi-kai from “military intervention”to “military domination． ”But efforts to rebuild political authority did not work，finally leading to the stratocracy． However，the appearance of the stratocracy was not the natural outgrowth of the power of local governors in the late Qing Dynasty，but the rise of new forces of the New Army．
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