傅瑩：中國與多邊主義

【文/ 傅瑩】

中國人理解的多邊主義是協商一致、合作治理、互利共贏。中國與歐洲對維護多邊主義應該是有共識的，因為中歐都主張通過國際合作解決人類共同面臨的挑戰，都支持在聯合國框架下的多邊機構中協調處理分歧。推崇多邊主義的大師魯傑（John Ruggie）説過：“（多邊主義）這一術語的定義意味着合作。”合作是中歐關係碩果累累的原因，也是未來繼續合作的基礎。

今年1月，中國國家主席習近平在世界經濟論壇“達沃斯議程”對話會的特別緻辭中重點向世界闡釋了中國的多邊主義立場，表示要“始終維護以聯合國為核心的國際秩序和國際體系，始終遵守以聯合國憲章為宗旨的國與國關係基本準則。”

中歐之間已經構建起互相依存度比較高的複合型關係，中國是歐盟最大的貿易伙伴，2020年雙邊貿易額達到6495億美元，在新冠疫情期間，中歐班列運送了大量抗疫物資，為歐洲抗擊疫情發揮了重要作用。從電視上可以看到載滿來自歐洲貨物的中歐班列，讓人深深體會到中歐之間並不遙遠，雙方有廣闊合作空間。

今年3月我參加了意大利國際事務研究所舉辦的一場關於“歐洲戰略自主”的研討會。歐洲面對中美緊張關係、大國競爭等新的國際環境，感到困擾和壓力，“歐洲戰略自主”是因應變化而出現的思想潮流。

我在會上感受到了歐洲人對與中國深化關係、增進了解的願望，同時也意識到存在對中國有誤解和分歧的問題。中歐由於文化、歷史等多方面原因，難免存在認識上的差異，應該就各種新問題開展對話，增進了解，避免在誤解基礎上做判斷。

2020年爆發的新冠疫情對人類的啓示之一是：在全球挑戰面前沒有國家可以獨善其身。從歷史的角度看，最大的遺憾是多邊主義精神的缺位，大國乃至國際機制未能發揮足夠的凝聚作用來調動國際抗疫合作。由此可見，中國和歐洲不應受到分歧的干擾，我們應更多聚焦共同利益，秉持多邊主義精神，團結應對全球挑戰。中歐需要建立更多溝通的橋樑，開展更多系統性對話，以冷靜和平和的態度交流思想，增強對彼此的瞭解和信任。

回望歷史，人類推動多邊主義的初衷是為了化干戈為玉帛，多邊主義是為尋求和平而誕生的。現代國際關係形成之前就存在多邊交往與合作的雛形，古希臘時期斯巴達牽頭的伯羅奔尼撒同盟和以雅典為核心的提洛同盟，被視為多邊外交的早期形態。在兩千多年前的中國也有多邊交往形態，例如，春秋戰國時期的會盟制度等。但是，現代以維護和平和促進合作為目的的多邊主義，還是誕生於20世紀，兩次世界大戰的慘痛教訓促使人們思考如何建立一種能夠調和國家間利益、終止戰爭、實現世界永久和平的多邊機制。聯合國的成立和聯合國大廈門前扭結的槍筒，宣告了在國際社會依仗多邊主義精神開展國際治理的共同意志。

圖片來源：nonviolence.com

20世紀90年代以來，在冷戰後世界和平發展潮流的推動下，多邊主義得到越來越多和有效的發揮，多邊國際合作激發出新的活力，多邊協商、多邊合作成為21世紀人類社會探索共同治理的主要方向。其間，聯合國及其附屬機構發揮着重要作用，新的世界大戰得以避免，不少局部衝突得到控制，十幾億人成功脱貧，聯合國憲章成為“世界和平與發展的重要保障”。可以認為，多邊主義作為維護國際秩序和規範的基本範式，得到廣泛認可和支持。

對中國人來説，現代多邊主義是一個比較新的概念，我們經歷了從學習到接受再到堅決主張和積極實踐的過程。伴隨着中國在上個世紀80-90年代步步深入的改革開放，中國人開始接觸和了解多邊主義理念。例如在亞洲地區，我們從成為東盟對話國為起點，開啓了多邊外交和參與區域合作的進程。為了瞭解和學習多邊主義概念和實踐，我和同事們還曾專程到加拿大、新加坡等國家開展訪談活動。

這些年來，中國陸續加入了各種國際多邊組織，例如1986年加入關貿總協定（世貿組織前身）和亞洲開發銀行、1991年加入亞太經合組織等。中國不僅成為以東盟10+1、10+3等機制為中心的地區多邊合作的重要成員和活躍的貢獻者，還開始主動設計和構建多邊外交機制，例如組織和有效推進朝核六方會談，舉辦上合會議和金磚會議，發起中國-東歐國家（17+1）多邊合作機制等。在軍事安全領域，中國積極參加聯合國裁軍會議，簽署了《全面禁止核試驗條約》等一系列條約。中國非常重視聯合國、世界貿易組織、二十國集團等框架下的多邊組織，堅定維護以聯合國為核心的國際體系，在事關全球發展的如經濟恢復、氣候變化、公共衞生、防範恐怖主義等多邊議程上，中國都成為不可或缺的參與方和貢獻方。

進入21世紀，中國的多邊主義實踐更加主動和積極，倡導建立了亞洲基礎設施投資銀行，提出共建“一帶一路”。在2020年新冠疫情肆虐全球時，中國不僅努力控制和克服國內疫情，還廣泛開展雙邊和多邊合作，參加了聯合國、二十國集團和世界衞生組織框架下的協調工作，倡導人員和物資的便利化安排，幫助貧困國家緩解債務難題，向聯合國維和人員捐贈疫苗[1]，在氣候變化領域承諾力爭2030年碳排放達到峯值、努力爭取2060年實現碳中和等[2]。在短短40多年時間裏，中國人對多邊主義概念的認識和了解有了大幅度的提升，在行動上也有了質的飛躍。作為一個發展中大國和參與國際事務的後來者，這個進步是很了不起的。

歐洲人重視多邊主義理念，歐盟就是多邊主義的產物，也是迄今世界上最成功和成熟的地區性多邊主義範例。就像歐盟外交和安全政策前高級代表費代麗卡·莫蓋里尼説的，“歐盟生來就支持多邊主義，多邊主義融在歐盟的DNA裏。”從語言學的角度看，多邊主義這個詞以“ism”結尾，因此可以理解為屬於“信仰”意義上的概念。牛津詞典對多邊主義的釋義是“在多邊基礎上形成協議或條約的原則或者實踐。”[3]大英百科全書更為具體地説明，這些原則是“參與者之間不可分割的利益、傳播互惠的承諾、旨在強制執行一種特定行為模式的爭端解決制度”[4]。由此可見，多邊主義不應是實現獨家目標的手段，採用多邊主義不能只為了實現自身利益的最大化，有時甚至需要出讓一定的利益，目的是通過利他和維護多方利益來滿足更為宏大的利益需求。我相信，歐洲不希望多邊主義成為任何國家謀取國家利益的工具，中國也不希望。

多邊主義體現了人類歷史發展的正確方向，體現的是平等、互利和開放的原則，通過對話協商的方式，力求在最大程度上照顧各方利益和關切。多邊主義反對排他性和歧視性，在遵守規則的情況下，發揮全球和區域多邊框架和機制的作用，推動世界和平、發展。大國在推行多邊主義理念時，尤其需要剋制追求獨家利益的衝動，應能更多考慮整體利益和平均需求。如果把多邊主義作為一種信念，那麼就不應該建立在特定政治制度或者價值基礎之上，而應該是基於和平、發展、公平、正義、民主、自由的全人類共同價值，是對人類美好未來的信念。

當前，中美緊張關係對世界造成比較大的影響，歐洲在複雜形勢下需要獨立思考的空間。中國和美國沒有必要也沒有理由要求歐洲國家選邊站隊，歐洲與中國和美國都有緊密的合作關係，無論如何選擇都會傷及自身利益。而且，從維護全球體系的完整性角度出發，歐洲也有責任勸説和幫助中美克服和解決分歧，而不是擴大矛盾乃至分裂世界。

我很認同歐洲理事會主席米歇爾先生的觀點：“多邊主義才是應對全球性挑戰的關鍵。”中國和歐洲都是當前世界的重要力量，以開放的姿態開展雙方都有需要的合作是應對全球挑戰的關鍵。我們應當堅持聯合國在國際事務中的核心作用，維護所有國際社會成員平等參與的透明、公正、合理的國際秩序和體系。中歐應在關係到全球共同未來的重要議題下積極開展合作。例如在全球公共衞生問題上，中歐應在疫苗的有效發放和世界經濟、國際交往的安全恢復上協商合作。2020年9月中歐正式簽署《中歐地理標誌協定》，決定共同打造中歐綠色合作伙伴、數字合作伙伴關係，這些都將促進中歐關係的深入發展。

2020年人類經歷了史上罕見的多重危機，作為世界兩大力量、兩大市場、兩大文明，中歐通力合作將是多邊主義的勝利，中歐並肩前行是對人類社會的貢獻。

【本文首發於2021年5月6日“歐盟動態”（EurActiv）網站觀點欄目，作者傅瑩是清華大學戰略與安全研究中心主任、中國外交部前副部長】

註釋：

1. 據新華社報道：“3月15日電中國常駐聯合國代表張軍15日致信聯合國秘書長古特雷斯，正式通報中國將向聯合國維和人員捐贈新冠疫苗，優先用於非洲任務區。”網址鏈接：http://www.xinhuanet.com/2021-03/16/c_1127214765.htm

2. 2020年9月22日，習近平主席在第七十五屆聯合國大會一般性辯論上提出：“力爭2030年前二氧化碳排放達到峯值，努力爭取2060年前實現碳中和。”網址鏈接：http://www.xinhuanet.com/politics/leaders/2020-09/22/c_1126527652.htm

3. 原文為：“The quality of being multilateral; the principle or practice of forming agreements or treaties on a multilateral basis.”網址鏈接：https://www.oed.com/view/Entry/244227?redirectedFrom=multilateralism#eid

4. 原文為：“Those principles are an indivisibility of interests among participants, a commitment to diffuse reciprocity, and a system of dispute settlement intended to enforce a particular mode of behaviour.”網址鏈接：https://www.britannica.com/topic/multilateralism

（翻頁查看英文版）

How China Views Multilateralism

By Fu Ying

06-05-2021，EURACTIV

(https://www.euractiv.com/section/eu-china/opinion/how-china-views-multilateralism/)

Multilateralism, as we in China understand it, is about seeking consensus through consultation and manage common affairs through cooperation for shared benefits and win-win results. In this sense, China and Europe share a common interest in upholding multilateralism.

We both believe that the challenges faced by humankind should be tackled through international cooperation, and differences need to be addressed through consultations in multilateral institutions within the framework of the United Nations (UN). As John Ruggie, a renowned champion of multilateralism, said that “the definition of the term (multilateralism) means cooperation.” In China-EU relations, cooperation is not only the source of fruitful achievements to date but also the foundation for future cooperation.

In his special address at Davos Agenda, a virtual event with the World Economic Forum, Chinese President Xi Jinping expounded on China’s stance in upholding multilateralism. He said that China remains firm in its position to safeguard the international order and international system that is centered around the UN, and abide by the UN Charter of the United Nations as the basic and universally recognized norms governing state-to-state relations.

China and the EU have established a highly interdependent structure of relations. China’s trade with Europe registered USD 649.5 billion in 2020, making it the EU’s largest trading partner. During the COVID-19 pandemic, China Railway Express (CRE) delivered huge quantities of anti-virus supplies to European states，contributing to their fight against the pandemic. Watching on TV the arrival of CRE trains carrying varieties of European goods and products, I have no doubt that, despite the geographic distance, the two sides stand close with each other and share great potential for cooperation.

In March of this year, I attended the “European Strategic Autonomy” seminar hosted by the Italian Institute of International Affairs (IAI). The impression I had was that, against the background of changing international environment that features tense China-US relations, Europe is stressed by the pressure of major power competition. The concept of “European strategic autonomy” gained attention as a response to world changes.

The seminar provided a chance for me to appreciate the desire among the Europeans to further grow ties and deepen understandings with China. I also realized that there exist misunderstandings and differences between us which is not a surprise as we have grown out of different cultures and history. It gives us greater reason to have more frequent conversations including over various emerging issues to build better mutual understandings. I think it would be dangerous for major players in the world to decide on matters concerning each other based on misunderstandings.

One lesson we can learn from the COVID-19 pandemic in 2020 is that no country can face global challenges alone. Reflecting from a historic perspective, one can see the lack of multilateralism in this battle as the biggest disappointment. Major countries, even international institutions, failed to effectively gather enough strength in the global fight against the virus. Learning from this lesson, China and the EU should not be troubled by differences and focus on common interests and pull through global challenges together by upholding multilateralism. China and the EU should expand communication, increase systematic conversations, and exchange ideas in a calm manner.

Looking back at history, multilateralism was forged with purpose of stopping war and forging amicable ties. It was born for peace. The earlier form of multilateralism appeared long before the  modern international relations took shape. The Peloponnesian League led by Sparta in ancient Greece and the Delian League led by Athens were two examples regarded as multilateral diplomacy in its early days. Similar experience can also be found in ancient China more than two thousand years ago, i.e., leagues of lords during the Spring and Autumn Period and the Warring States Period. In the 20th century, the bitter lessons of the two World Wars compelled people to explore a multilateral mechanism that could coordinate inter-states interests, end wars, and ensure lasting world peace. The founding of the UN and the image of the Non-Violence sculpture at the UN Headquarters voiced, loud and clear, the common aspiration of the international community to uphold multilateralism in international governance.

Since the 1990s, driven by the trend of peaceful development in the post-Cold War period, multilateralism has been more broadly and effectively practiced. Multilateral cooperation have gained new energies around the world, and multilateral consultation and cooperation have become the main channel for finding ways and means for global governance in the 21st century. The UN and its affiliated institutions have been playing a critical role in this process. New world wars have been avoided, many regional conflicts mitigated, and billions of people have successfully risen out of poverty. The UN Charter has become an essential guarantee of world peace and development. It can be argued that multilateralism, as a basic paradigm safeguarding international orders and norms, has gained broad recognition and support.

For many people in China, modern multilateralism is a relatively new concept, which we took time to learn, accept, and then firmly uphold. As China moved fast with reform and opening-up in 1980s and 1990s, there is also growing awareness about the concept of multilateralism along with greater contact with outside world. For example, in Asia, since becoming a Dialogue Partner of the Association of Southeast Asian Nations (ASEAN), China embarked on its journey of participating in multilateral diplomacy and regional cooperation. My colleagues and I visited Canada and many other countries to study the concept and learn about how multilateralism is practised in various fields.

The past years have seen China become a member of many global multilateral institutions. China joined the General Agreement on Tariffs and Trade (GATT), predecessor of the World Trade Organization (WTO), and the Asian Development Bank (ADB) in 1986, and joined the Asia-Pacific Economic Cooperation (APEC) in 1991. China not only plays a role in regional multilateral cooperation centered around the ASEAN Plus format, but also takes the initiative to design and build new multilateral mechanisms. For example, China organized and promoted the Six Party Talks on North Korean nuclear issues, hosted summits for BRICS and the Shanghai Cooperation Organization (SCO), and initiated the Cooperation between China and Central and Eastern European Countries (17+1). Regarding military security, China actively participated in the UN’s Conference on Disarmament, and signed a number of treaties including the Comprehensive Nuclear Test Ban Treaty (CTBT). China highly values multilateral institutions within the frameworks of the UN, WTO, and the Group of Twenty (G20), and vows to safeguard the international system centered around the UN. It is now an indispensable participant and contributor to many multilateral agendas on global development, including economic recovery, climate change, public health, and counterterrorism.

Entering into the 21st century, China has become more proactive in multilateral agendas, by, for example, initiating the Asian Infrastructure Investment Bank (AIIB) and the Belt and Road Initiative (BRI). When the COVID-19 pandemic gripped the world, China not only endeavored to contain the virus at home, but also engaged in extensive bilateral and multilateral cooperation. Specifically, by working with the UN, G20, and the World Health Organization (WHO), China facilitated access for personnel and supplies, helped ease the debt of poverty-stricken countries, donated vaccines to UN peacekeepers[1], and in order to tackle climate change, pledged to achieve a peak in carbon emissions by 2030 and become carbon neutral by 2060.[2] Within just four decades, not only have the Chinese people significantly improved their understanding of multilateralism, but they also achieved a qualitative leap in translating the concept into practice. Therefore, it is fair to say that China, as a large developing country and a latecomer in international affairs, has secured remarkable progress.

Europeans value multilateralism, and the founding of the EU is viewed in the world as a successful product of multilateralism. It is now the most fruitful and sophisticated example of regional multilateralism in the world. As remarked by Federica Mogherini, former High Representative of the European Union for Foreign Affairs and Security Policy, “the European Union is genetically programmed to support multilateralism—multilateralism is in its DNA.” The word “multilateralism” ends with “ism,” which, based on linguistic analysis, often means a sort of “belief.” The Oxford Dictionary defines “multilateralism” as “the quality of being multilateral; the principle or practice of forming agreements or treaties on a multilateral basis.”[3] The Encyclopedia Britannica explains more specifically that these principles are “an indivisibility of interests among participants, a commitment to diffuse reciprocity, and a system of dispute settlement intended to enforce a particular mode of behavior.”[4] Therefore, multilateralism should not be used for the goals or interest maximization of any single party. Sometimes it is even necessary for the parties to make concessions so that one’s own interests can ultimately be met by practicing altruism and safeguarding multi-party interests. I think it is not Europe’s desire to allow multilateralism be used as a tool to serve the interests of one single party. Neither does China.

Multilateralism is now commonly viewed as the right direction for the progress of mankind—that is, it strives to address the interests and concerns of all parties as much as possible through dialogue and consultation, based on principles of equality, mutual benefits, and openness. Opposing exclusiveness and discrimination, multilateralism encourages global and regional multilateral frameworks and mechanisms to play their role in promoting world peace and development in a rule-based manner. When major countries comply with multilateralism, they must restrain themselves from seeking only their own interests; instead, they should consider overall interests and average needs. Multilateralism, if regarded as a belief, should not be one based on a particular political system, but on universally shared common values, such as peace, development, fairness, justice, democracy, and freedom, which underpin a bright future of humankind.

While tensions between China and the US are exerting an impact on the world and the political climate is getting more complicated, Europe needs space for independent thinking. There is no need or reason for Beijing or Washington to ask European countries to take sides. Europe has developed close partnership with both China and the US, which means its interests would be undermined whichever side it took. Moreover, to maintain the integrity of the global system, Europe has the responsibility to persuade and help China and the US to grapple with their differences, instead of expanding contradictions and even splitting the world.

I tend to agree with Charles Michel, President of the European Council, that multilateralism is the key to meeting global challenges. For China and Europe, both important players in the international arena, the key lies in cooperation in an open manner. We should uphold the central role of the UN in international affairs and maintain a transparent, fair, and reasonable international order in which all members of the international community engage on an equal footing. China and the EU should work together on important issues concerning the future of all. For example, for the good of global public health, we should collaborate on the rollout of vaccines and the safe recovery of the world economy and international exchanges. In September 2020, China and the EU signed the EU-China Landmark Geographical Indications Agreement, aiming at building a green and digital partnership. All of these efforts will advance in-depth development of China-EU relations.

In 2020, humanity has experienced multiple crises that are rare in history. As two major forces, markets and civilizations in the world, our close cooperation will be a victory of multilateralism and will render a contribution to the progress of human society.

（Fu Ying is the Chair of Center for International Security and Strategy (CISS) at Tsinghua University and former Vice Foreign Minister of China.）

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