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抗战之前,上海华界﹑租界分治,国民政府的上海市政府管治权限于市区北部,主要商业区都在租界以内,商会地位举足轻重。上海总商会1911年成立,1927年“四一二”事变,蒋介石上台,上海总商会发表《对时局的宣言》表态支持,但国民党还是对商人自发组成的商会不放心,1928年国民党上海市党部组成商民协会,取代上海总商会。正如美国学者费正清在《剑桥中国史》中所说:
Before the war of resistance against Japan, the boundaries of governance of the Shanghai municipal government of the Chinese boundaries, the concession of the concession, and the National Government were restricted to the northern part of the urban area. The major commercial areas were within the concession, and the position of the chamber of commerce was pivotal. The Shanghai Chamber of Commerce was founded in 1911, the “April 12 Incident” in 1927, Chiang Kai-shek came to power, and the Shanghai Chamber of Commerce issued his “Declaration on the Current Situations.” However, the Kuomintang still did not trust the chambers of commerce that spontaneous businessmen formed. In 1928, the Kuomintang Shanghai Party Department Merchants Association, to replace the Shanghai Chamber of Commerce. Just as the American scholar Fei Zhengqing said in "Cambridge Chinese History: