国家安全指令:最为隐蔽的美国总统单边政策工具

National Security Directives:U.S.Presidents' Most Unknown Unilateral Action Tool

在美国政治里,总统通常选择不同途径去推动自己的政策议程,包括单方面签署和颁布总统行政命令或指令。作为一个重要的单边行动工具,国家安全指令被认为是最为机密、最具有权势的美国总统指令,并在影响和规定美国对外及军事政策方面发挥着不可忽视的作用。国家安全指令不仅构成战后美国对外政策史的一部分,而且一些指令引发饱受争议的美国对外政策行动,给世界政治带来复杂的后果。由于使用上具有随意性、保密性和灵活性,国家安全指令成为战后美国总统绕开国会权力制约、经常使用却又最为隐蔽的行政密令。不仅美国国会和普通民众在大多数情况下并不知晓总统签署了这些指令,而且它妨碍了国会参与国家安全政策制定和实施政策监督的宪法权力,对美国联邦政治体制中有关权力分享及制衡的基本原则构成挑战。

In American politics,the president usually has different choices to promote his policy agenda,including issuing unilaterally presidential orders or directives.Presidential national security directives(NSDs) are regarded as one of the most unknown but powerful in the U.S.presidential unilateral policy toolbox,which has played remarkable roles in shaping and regulating American foreign and military policy.NSDs constitute a part of post-war American foreign policy history,and some of them have given rise to controversial foreign policy actions and thus caused mixed but painful consequences in world politics.The arbitrariness,secrecy,and flexibility in using NSDs enable U.S.presidents to bypass Congress in their foreign and security policymaking,and keep Congress and American public from knowing the existence of those NSDs.They block the constitutional powers of congressional supervision and its sharing of foreign and security policymaking,and thus pose challenges to fundamental principles like power sharing and checks and balances in American political system.