In 1977-78 military and civilian leaders debated whether the military or the civilian economy should receive priority in allocating resources for the Four Modernizations. The military hoped for additional resources to promote its own modernization, while civilian leaders stressed the overall, balanced development of the economy, including civilian industry and science and technology. By arguing that a rapid military buildup would hinder the economy and harm the defense industrial base, civilian leaders convinced the PLA to accept the relegation of national defense to last place in the Four Modernizations. The defense budget accordingly was reduced. Nonetheless, the Chinese military and civilian leadership remained firmly committed to military modernization.
The 1979 Sino-Vietnamese border war, although only sixteen days long, revealed specific shortcomings in military capabilities and thus provided an additional impetus to the military modernization effort. The border war, the PLA's largest military operation since the Korean War, was essentially a limited, offensive, ground-force campaign. China claimed victory, but the war had mixed results militarily and politically. Although the numerically superior Chinese forces penetrated about fifty kilometers into Vietnam, the PLA sustained heavy casualties. PLA performance suffered from poor mobility, weak logistics, and outdated weaponry. Inadequate communications, an unclear chain of command, and the lack of military ranks also created confusion and adversely affected PLA combat effectiveness.
The military modernization begun in the late 1970s had three major focuses. First, under the political leadership of Deng Xiaoping, the military became disengaged from civilian politics and, for the most part, resumed the political quiescence that characterized its pre-Cultural Revolution role. Deng reestablished civilian control over the military by appointing his supporters to key military leadership positions, by reducing the scope of the PLA's domestic nonmilitary role, and by revitalizing the party political structure and ideological control system within the PLA.
Second, modernization required the reform of military organization, doctrine, education and training, and personnel policies to improve combat effectiveness in combined-arms warfare. Among the organizational reforms that were undertaken were the creation of the state Central Military Commission, the streamlining and reduction of superfluous PLA forces, civilianization of many PLA units, reorganization of military regions, formation of group armies, and enactment of the new Military Service Law in 1984. Doctrine, strategy, and tactics were revised under the rubric of "people's war under modern conditions," which envisaged a forward defense at selected locations near China's borders, to prevent attack on Chinese cities and industrial sites, and emphasized operations using combined-arms tactics. Reforms in education and training emphasized improving the military skills and raising the education levels of officers and troops and conducting combinedarms operations. New personnel policies required upgrading the quality of PLA recruits and officer candidates, improving conditions of service, changing promotion practices to stress professional competence, and providing new uniforms and insignia.
The third focus of military modernization was the transformation of the defense establishment into a system capable of independently maintaining a modern military force. As military expenditures remained relatively constant, reforms concentrated on reorganizing the defense research-and-development and industrial base to integrate civilian and military science and industry more closely. Foreign technology was used selectively to upgrade weapons. Defense industry reforms also resulted in China's entry into the international arms market and the increased production of civilian goods by defense industries. The scope of PLA economic activities was reduced, but the military continued to participate in infrastructure development projects and initiated a program to provide demobilized soldiers with skills useful in the civilian economy.
Political Role of the People's Liberation Army
Deng Xiaoping's efforts in the 1980s to reduce the political role of the military stemmed from his desire to reassert civilian control over the military and to promote military modernization. To accomplish his objectives, Deng revitalized the civilian party apparatus and leadership and built a consensus on the direction of national policy. He also established personal control over the military through personnel changes, and he reduced the scope of the PLA's domestic political, economic, and social roles. Finally, he strengthened party control over the military through institutional reforms and political and ideological education. The revitalization of the party and the establishment of a consensus on national policy assured top military leaders of political stability and a vigorous party capable of handling national and regional affairs without extensive military participation.
Deng's personal political control was established over the military through his assumption of the position of chairman of the party Central Military Commission in June 1981 and through his appointment of his supporters to key positions in the party Central Military Commission, Ministry of National Defense, and the PLA's General Staff Department, General Political Department, and General Logistics Department. Occasional replacement of military region and military district commanders also strengthened Deng's hand. Military leaders who objected to Deng's policies were replaced with more amenable personnel.
The creation of the state Central Military Commission in 1982 aimed to further strengthen civilian control over the military by stressing the PLA's role as defender of the state and by establishing another layer of supervision parallel to party supervision. The civilianization of several PLA corps and internal security units reduced the size of the PLA and the scope of its involvement in civilian affairs. The placement of defense industries under civilian control and the transfer or opening up of military facilities, such as airports and ports, to civilian authorities also limited the PLA's influence in economic and political matters. Propaganda using the PLA as a model for society also diminished, and emphasis was placed on the PLA's military rather than political role.
In addition to making personnel changes, Deng revitalized party control over the PLA and diffused the military's political power by designating provincial-level, municipal, district, and county party committee secretaries to serve concurrently as the first political commissars of their equivalent-level units in the regional PLA. The percentage of PLA personnel permitted to join the party was limited by restricting party membership to military academy graduates. Political and ideological training stressed the military rather than the social, ideological, or economic role of the PLA. Special effort was made to discredit the PLA's role in the Cultural Revolution; the PLA's support for the left was described as incorrect because it caused factionalism within the military. While emphasizing the necessity and appropriateness of reforms to modernize the military, political education also sought to guarantee military support for Deng's reform agenda. Beginning in 1983 a rectification campaign (part of the party-wide rectification campaign aimed primarily at leftists) reinforced this kind of political and ideological training.
Beginning in the late 1970s, Deng Xiaoping succeeded in decreasing military participation in national-level political bodies. Military representation on the Political Bureau fell from 52 percent in 1978 to 30 percent in 1982, and military membership in the party Central Committee declined from 30 percent in 1978 to 22 percent in 1982. Most professional military officers shared common views with the Deng leadership over military modernization and the fundamental direction of national policy, and they willingly limited their concerns to military matters. Nonetheless, some elements in the PLA continued to voice their opinions on nondefense matters and criticized the Deng reform program. Dissent centered on prestigious military leaders, notably Ye Jianying, who feared that ideological de-Maoification, cultural liberalization, and certain agricultural and industrial reforms deviated from Marxist values and ideals. The Deng leadership contained these criticisms with the help of the personnel changes, political education, and the rectification campaign just mentioned. In this way it was able to keep military dissent within bounds that did not adversely affect civil-military relations.