In October 1720, when the Qing troops had driven the Zungar forces out of Tibet, the Qing court started to reform the government system of the region that was geared to control by Tibetans of the upper ruling class.

In February 1721, the Qing court granted the high official position of Bezi to Kangjinei and Ngarpopa, who had distinguished themselves in battles against the Zungars. In the meantime, the court granted a high official position to Lungbonei, who served as Zeboin during the reign of Larzang Khan. The three were placed in charge of ruling Tibet.

In 1723, the Qing court promoted Pholunei, the major assistant of Kangjinei, and Qamzu Zhalnei, an assistant to the 7th Dalai Lama, to be Galoon government officials.
The change shows the Qing court would no longer recognize the heritage of the Mongol Khan in Tibet. This, of course, touched off discontent among some Mongol nobles, including Lobzangdainjin, who was in charge of garrisoning Qinghai.

He was the grandson of Gushri Khan and, therefore, a hereditary prince. In May 1723, when he returned from Lhasa to Qinghai, he incited a rebellion. The Qing court decided to put down the rebellion in response to demand from many in Tibet. With aid and support of the local forces, the Qing troupes finally put down the rebellion.  

Pholunei Came to Power

The Qing court won the favor of the Tibetans in putting down the rebellion incited by Lobzangdainjin. However, the court was not sure whether the situation in Tibet would improve, so more officials were sent there to watch over developments.

In 1725, the Qing court awarded Lholung Zong in eastern Tibet to the 7th Dalai Lama, and for this purpose, officials were sent to Tibet. Emperor Yongzhen made it clear that Tibetan affairs should be handled by Kangjinei, with the assistance of Ngarpopa.

When the Qing official E’chi reached Lhasa, he found the Gaxag government had separated into two factions Kangjinei and Pholunei were in one faction representing the interests of the Xigaze area, while Ngarpopa, Lungbonei and Zhalnei represented the interests of the Lhasa area. The two factions were locked in a power struggle.

E’chi made a report to the emperor, who decided to send two High Commissioners to handle Tibetan affairs directly.

Registration of palace chambers. In 1728, the Qing emperor ordered the 7th Dalai Lama to move to Litang to stay away from the Zungar troops. It is now collected by the China No.1 Historical Archives.

While the two High Commissioners were on their way to Tibet, Ngarpopa ventured to assassinate the chief Galoon Kangjinei and his family, and sent troops to hound Pholunei, who had already retired and lived in his hometown.

Pholunei lost no time in reporting this to the Qing court and, in the meantime, gathered troops in the Xigaze area and Ngari to counterattack. This is known in history as the “U-Tsang battle.”

It lasted close on one year, with Pholunei eventually defeating Ngarpopa. In July of that year, the forces of the former fought their way into Lhasa and Ngarpopa and two other Galoons were arrested and subsequently executed when the Qing general Chalang’a and High Commissioner Sengge  had joined hands with Pholunei in interrogating them. Lamas who assisted Ngarpopa in the rebellion were also punished.

This was followed by the Qing court making adjustments in the political power of Tibet. Pholunei was granted the official position of Bezi and was put in charge of Tibetan affairs. High Commissioner’s Offices were set up in Lhasa, headed by Sengge and Mala with equal rank.

The Qing court also re-divided the Tibetan-inhabited areas

--Kangding, Litang and Batang of the Kham area were placed under the jurisdiction of Sichuan;

--Zhongdian, Deqen and Weixi in southern Xikang were put under Yunnan; and

--the area from west Xigaze to Ngari was put under the Panchen Erdeni.

In 1728, the Qing court moved the residence of the 7th Dalai Lama from Lhasa to Litang, and troops were sent to guard him on the grounds that the Zungars might invade. This, in fact, was designed to ensure the Dalai Lama could not poke his nose into Tibetan Government affairs.

Pholunei distinguished himself with his ability to rule Tibet. Under his rule, Tibet enjoyed peace and prosperity. The Qing emperor granted him the official position of Bele, with a silver seal of authority. In January 1740, Qing Emperor Qianlong granted Pholunei the official position of prince. 

Decree issued by High Commissioner Song Jn measures 105 cm long and 78 cm wide. The paper decree is now collected by the TAR Archives.

Establishment of Gaxag Government

In February 1747, Pholunei passed away and his second son came to power. Unlike his father, Zholmet Namzhale adopted measures to intensify contradictions with the Dalai Lama, putting the Qing control measures at risk. He adopted a two-faced attitude toward the Qing High Commissionert, and, in the 13th year of the reign of Emperor Qianlong, forced the court to pull out its troops out of Lhasa.

In 1750, he collaborated with the Zungars in a new rebellion. The Qing court managed to kill Zholmet Namzhale and his men, which gained the support of the 7th Dalai Lama. In 1751, the Qing court authorized the 7th Dalai Lama to handle Tibetan government affairs. And the Qing court enacted the 13-Article Ordinance for the More Effective Governing of Tibet. Major contents include the establishment of the Gaxag government, and the power of the High Commissioners and the Dalai Lama.

From then on, the Tibetan affairs were handled mainly by High Commissioners and the Dalai Lama. This made it possible for the Dalai Lama to begin serving as the religious and government leader in the region.