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The neighborhood committees were specifically responsible for maintaining public order and were accountable to the local people's congress. Residents' committees and residents' "small groups," also established in , were subordinate to neighborhood committees. These were the genuine grass-roots organizations, staffed by unpaid local residents elected by their neighbors.
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They directly involved the people in controlling their neighborhoods, and they reduced the demands on formal state institutions by maintaining surveillance for the public security forces and mediating most civil disputes and minor criminal cases for the judiciary. A residents' committee supervised from to families with a staff of 7 to 17 members, one from each subordinate residents' small group. A residents' small group controlled fifteen to forty households.
The public security organization in the countryside was also pervasive. From the s to the early s, it was structured along military lines. The people's commune was the lowest level of government organization, with its administrative committee on a legal par with the local people's government in the urban areas. People's communes were subdivided into production brigades and production teams. Each team elected a people's public security committee, which sent a representative to the committee at the brigade level.
Physical control was mostly the responsibility of the militia units organized at the team, brigade, and commune levels. In the winter of communes were replaced by township governments, and grass-roots committees were patterned after urban committees. These rural grass-roots committees were given legal status by the Draft Organic Regulations for Villagers' Committees approved by the National People's Congress in April Residents' committees and small groups were staffed originally by housewives and retired persons but involved others as their functions expanded.
Their pervasive presence made them a primary means for disseminating propaganda, and their grass-roots nature allowed for effective use of peer pressure in mediating disputes and controlling troublemakers. Perhaps 4 or 5 percent of the adult population exercised some authority in what Western experts have described as "participatory democracy in an extended form.
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People's mediation committees, guided and supervised jointly by the basic people's court and the public security station, performed an important function within the residents' committees. They settled minor disputes and disagreements using conciliation and peer pressure. Mediation committees were established originally in communist areas during the Chinese Civil War —49 as a natural outgrowth of traditional preferences for local mediation of disputes. Upon taking over the major cities of China in , the Communists were confronted with a tremendous backlog of judicial cases.
Mediation committees provided a means of resolving disputes while actively propagandizing and involving the people in the new government. Beginning in mediation committees were set up in neighborhoods, stores, schools, enterprises, factories, and workshops in the cities and in the production brigades and teams in the countryside. In the s the five- to eleven-member people's mediation committees were elected by popular vote to two-year terms with the option of being reelected. Members served without pay and could be removed at any time by the electors for dereliction of duty.
They were responsible for settling disputes, strengthening popular unity, promoting production and order, and conducting propaganda activities. Parties in dispute came voluntarily to the mediation committee; people seemed to feel they should try mediation before proceeding to a lawsuit. Mediators' duties ranged from acting as go-betweens for parties who refused to talk to one another to defining issues, deciding questions of fact, and issuing tentative or advisory decisions.
Mediation committees also exerted strong political, economic, social, and moral pressures upon one or both parties to gain "voluntary" compliance with the decisions. In addition to mediation committees, other officials, police officers, party members, and work supervisors were expected to serve as mediators. Members of the residents' committees and small groups who were not members of the mediation committees were also involved in the mediation process.
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