国际政治中的制度方略——内涵、逻辑与策略

Institutional Statecraft in International Politics:Concept,Logic,and Strategy

随着国际体系日趋制度化和大国间制度竞争加剧,国际制度成为国家实现对外政策目标的常见工具,国际制度相关权力成为国家竞争的重要目标。国际制度何以能成为国家的政策工具?国家追逐与国际制度相关的何种权力?国家在国际关系实践中如何使用国际制度工具?这些问题亟须系统的理论探索。借鉴方略和经济方略的相关研究,制度方略(institutional statecraft)可被用以概括国家运用国际制度实现对外政策目标的策略、方法和技巧。制度方略包含三大构成要素:制度内涵、权力属性和操作策略。国际制度的内涵通过一个“属性—层级”框架得到梳理,不同概念间的关系被厘清。国际制度存在三重权力属性,即国际制度作为权力的结果、工具或来源。后两种权力属性具体表现为三类权力:操作性(规范塑造权、组织决策权和规则制定权)、工具性(议程设置权)和结果性(国际话语权和国际秩序主导权)。这些权力正是国家在国际政治中所使用的工具和争夺的目标。在政策实践中,制度方略的操作策略区分为如下五类:利他、合作、诱陷、强迫和排他。制度内涵、权力属性和操作策略共同构成了制度方略的完整理论框架。制度方略概念有利于更加清晰地理解国际制度的权力属性和国家间的制度竞争,有助于中国国际制度策略的制定。

With the increasing institutionalization of the international system and the intensification of institutional competition among major countries,international institutions(IIs) become a common tool for sovereign states to achieve foreign policy objectives,and the power related to IIs has become an important goal of inter-state competition. How can IIs become a policy tool? What kind of power do states pursue related to IIs? How do states use IIs as tools in the practice of international relations? These problems need systematic theoretical exploration. Drawing on the relevant researches of statecraft and economic statecraft,institutional statecraft is used to summarize the strategies,methods and skills of states to use IIs to achieve foreign policy objectives. The institutional statecraft includes three elements :institutional connotation,power attribute and operational strategy. The connotation of IIs is sorted out through an "attribute-level" framework,and thus the relationship among different concepts is clarified. IIs have three logic of power,that is,IIs as the result,tool or source of national power. The latter two power logic are embodied in three types of power :operational(norm-shaping power,organizational decision-making power,and rule-making power),instrumental(agenda-setting power) and resultant(international discourse power and international order dominance power). These power are tools and goals of states in international politics. In policy practice,the operational strategies of the institutional statecraft are divided into the following five categories :altruism,cooperation,entrapment,enforcement,and expulsion. The institutional connotation,power attribute and operational strategy constitute the complete theoretical framework of the institutional statecraft. The concept of institutional statecraft is conducive to a clearer understanding of the power attribute of the IIs and the institutional competition among states,as well as to the formulation of China’s IIs strategy.