Comprehensive Reflections to Aid in Governance
By Sima Guang
Translated By Yiming Yang
Annals of Han Book 7 Scroll 15 (continued)
The 11th year of the Emperor Wen of Early Era (169 B.C. continued)
Chao Cuo then composed another memorandum:
“I have heard that when Qin raised an army to attack the Nomads and Yue, it was not to defend the borders or save lives but out of greed and a desire for expansion. As a result, no achievements were secured, and the world descended into chaos. Moreover, raising an army without understanding the situation leads to soldiers being captured in battle or starving to death in besieged camps.
“The people of the northern Nomads and Yemaek tribes are accustomed to cold weather, while those of the Yangzhou and Yue tribes are accustomed to heat. Qin soldiers on the borders could not tolerate these environments. The garrisoned troops perished beyond the borders, while the laborers transporting supplies died on the roads. When Qin citizens saw these men depart, it was as if they were being sent to a public execution. They were sent away as punishment, labeled ‘ousted frontiers.’
“Banished officials, uxorilocal sons-in-laws, registered merchants, and those who had once been merchants were the first to be sent away. Later, the selection extended to those whose grandparents or parents had been merchants, and then to the poor and lowly in the community. The selection process was disorganized, and those chosen felt bitterness. They faced great danger, yet received no compensation if they were injured or killed in battle. Even with the death of soldiers, their families received not even a head tax refund for a year. People throughout the land knew that violent tyranny was imposed on them.
“Chen Sheng led troops on a garrison mission at Daze Township and became the first to lead an uprising. Soon, people across the realm followed him like flowing water. That was a direct consequence of Qin‘s oppressive conscription and threatening people with violence.”
“The livelihood of the nomads is not tied to the land, allowing them to easily disrupt the borders by constantly moving back and forth. This is the nomadic way of life and also the reason the people of the Middle Kingdom have abandoned their farms. The nomads often roam and hunt near the border, waiting for an opportunity to attack when the guard is weak. If the emperor does not send aid, the people on the border will lose hope and may surrender to the enemy. If aid is sent in insufficient numbers or arrives too late, the nomads would already have fled.
“Continuously gathering and dispersing troops is costly, but if the troops are disbanded, the nomads will return. Year after year, this will impoverish the Middle Kingdom and make the people discontent. Your Majesty’s concern for the border is a great kindness, and sending officials and troops to manage it is commendable. However, the troops stationed there are rotated annually and are unfamiliar with the nomads’ capabilities. It would be wiser to select people who already live in the border regions, grant them land for cultivation, and prepare them for defense. Build high walls and deep moats, establish cities and towns in strategic locations and at river confluences, but settle no fewer than a thousand households in any place.
“First, provide them with housing and farming tools, and then recruit more settlers. Those who enlist will receive pardons, ranks, and titles, and their inland families would receive tax and corvee exemptions. They will be given winter and summer clothing, as well as enough food until they are self-sufficient. If the people on the border do not have a greater income, they cannot remain in such dangerous places for long. If the nomads drive them away and steal their livestock, those who fight back and recover the spoils will keep half. The other half will be bought by the county government and returned to their original owners.
“If the people on the border are treated this way, the villages will support each other and risk their lives to resist the barbarians. This is not due to their virtue, but to protect their families and wealth. Compared to soldiers from the east, who are unfamiliar with the terrain and fearful of the nomads, this strategy is ten thousand times more effective. By relocating people to the border during your reign, you can eliminate the need for distant garrisons. Fathers and sons living on the border will protect one another and their families, removing the fear of captivity. Your wise policies will benefit future generations and earn you the reputation of a just and enlightened ruler—one far different from Qin‘s, whose people were full of grievances.”
The emperor adopted Chao Cuo’s advice and recruited people to settle the border areas.
Chao Cuo wrote again:
“Your Majesty’s decision to recruit and relocate people to the frontier is of great benefit. It will reduce the need for military garrisons and lower the costs of transportation and supplies. If local officials follow the law, care for the elderly and weak kindly, and treat the young and strong well without oppressing them, the first settlers will be comfortable and content, and they will not long for their old homes. Then, the poor will be motivated to follow by envy, encouraging one another to relocate.
“I have heard that in ancient times, when people were relocated, they would first balance the yin and yang, test the water and springs, and then build towns, establish cities, divide the land, and allocate house sites. They would construct houses first and acquire the necessary tools. Once the people had a place to live, they could work and put those tools to use. This is why people were willing to leave their hometowns and move to new settlements. The government must send doctors and priests to the colonies to help with illness and worship. They assisted in arranging marriages, raising children, and conducting burials. They planted trees and herded livestock. The houses were secure and fully equipped, fostering a love for the new homes and a desire to stay.
“I have also heard that in ancient times, to defend against enemies, five families formed a team, and the team had a leader. Ten team leaders formed a neighborhood, led by a lieutenant sergeant. Four neighborhoods formed a company, with a lieutenant captain (deputy 500). Ten companies formed a town, overseen by a deputy commander. These leaders were chosen from among the talented and responsible, those who knew the terrain and understood the people. They trained the residents in archery at home and prepared them for going to battle when engaging with the enemy. Their rank and file was internally formed already, so when the army was mobilized to defend against external threats, military and political orders were executed seamlessly. The soldiers were well-trained and disciplined, not allowed to migrate to other places. They played together in youth and worked together as adults. In night battles, they could recognize each other by sound, and in day battles, by sight. Their mutual loyalty was so strong that they were willing to die for one another.
“With encouragement and rewards, along with strict punishments, they never turned back in battle. However, those who are not strong and capable should not be relocated to the border, as it would waste resources. Even if they are strong, without good officials, their efforts will be in vain.
“Your Majesty, if you refuse to make peace with the Xiongnu, I humbly believe they will invade southward during the winter. Securing the border will leave a lasting impression. If you choose to punish their harassment, it should be a fatal blow. To establish your authority, preparations must begin in autumn. If they are allowed to escape, they will regain strength and become even more difficult to conquer in the future.”
Chao Cuo, known for his sharp and abrasive nature, earned the favor of the Crown Prince through his debating skills. The Crown Prince’s family affectionately referred to him as “the master mind.”
Reflection by Rio Grande 
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