鄧小平時期中共的外交決策模式

Patterns of Foreign Policy Decision-Making in Deng's China

許志嘉(Chih-Chia Hsu)

《問題與研究》 37卷8期 (1998/08) Pp. 49-72

https://doi.org/10.30390/ISC.199808_37(8).0004

摘要

決策過程是外交政策系統研究中一個極重要的部分，本文旨在對鄧小平時其中共決策過程進行系統性分析，透過相官資料的匯整與推論，推演出此時期中共外交決策的三種模式：領袖主導決策模式、領導集體決策模式及官僚組織決策模式。基於不同的議題內容與議題重要性，不同的外交政策係透過不同的覺策模式制訂，議題的重要性主要是依賴高層領導的判斷。一般而言，鄧小平時期，攸關國家安全、外交政策總方針、基本政策及被最高領導人視為具極重大利益的議題，多採領袖主導決策模式制訂，最高領導人鄧小平、重要元老、中央政治局常委，在決策中扮演重要的角色，獨立自主外交政策是典型的案例；僅次於最高外交政策方針、原則的重大政策、較不重要國家的雙邊關係等，多係採官僚組織決策模式，中共中央外事領導小組成員、國務院常務會議成員、相關部委首長，扮演重要的角色，對外經濟援助則是其中的案例。後鄧小平時期，由於江澤民能難掌有實質中共最高領導人地位，因此，領導集團決策模式是後鄧時期中共重大外交政策的主要決策模式，而隨著外交專業成員的日受重視，官僚組織決策模式的重要性可能會有所增強。

關鍵字

中共外交；決策模式；外交決策；領導集團；領袖主導；官僚組織

並列摘要

This paper attempts to analyze the decision-making patterns of China’s foreign policy and argues that there are three patterns in Deng’s China: leader in command, collective leadership, and bureaucratic organization. Which pattern dominates depends on the issue area and issue importance. In general, the issues of national security, major foreign policy guidelines, and other important policy issues always follow the leader in command pattern, most notably by Deng Xiaoping, the key elders, and the members of the Politburo Standing Committee. Secondary foreign policy issues and the most important practical issues have traditionally followed the collective leadership pattern. The members of the Politburo Standing Committee, the Central Secretariat from 1980~1987, and the Politburo after 1987 played important roles in this process. Other issues of a less pressing and more practical nature, such as relations with less important nations, have always followed the bureaucratic organization pattern. Here, the members of the Central Foreign Affairs Leading Group, the Executive Meeting of the state Council, and the heads of related ministries all have played important parts in the policy process. In the post-Deng era, however, as Jiang Zeming is not viewed as the preeminent leader, the leader in command pattern is being replaced by the collective leadership pattern as the best explanatory model of foreign policy-making.

並列關鍵字

Decision making ； China's foreign policy ； decision-making pattern ； policy process

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