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China - Foreign Policy Decision Making and Implementation
Foreign policy decision making and implementation
Understanding the intricate workings of a government can be difficult, especially in a country such as China, where information related to leadership and decision making is often kept secret. Although it still was not possible to understand fully the structure of Chinese foreign- policy-related governmental and nongovernmental organizations or how they made or implemented decisions, more was known about them by the late 1980s than at any time previously.
After 1949 China's foreign relations became increasingly more complex as China established formal diplomatic relations with more nations, joined the United Nations (UN) and other international and regional political and economic organizations, developed ties between the Chinese Communist Party and foreign parties, and expanded trade and other economic relations with the rest of the world. These changes had affected foreign relations in significant ways by the late 1980s. The economic component of China's international relations increased dramatically from the late 1970s to the late 1980s; more ministries and organizations were involved in foreign relations than ever before; and the Chinese foreign policy community was more experienced and better informed about the outside world than it had been previously.
Despite the growing complexity of Chinese foreign relations, one fundamental aspect of foreign policy that has remained relatively constant since 1949 is that the decision-making power for the most important decisions has been concentrated in the hands of a few key individuals at the top of the leadership hierarchy. In the past, ultimate foreign policy authority rested with such figures as Mao Zedong and Zhou Enlai, while in the 1980s major decisions were understood to have depended on Deng Xiaoping. By the late 1980s, Deng had initiated steps to institutionalize decision making and make it less dependent on personal authority, but this transition was not yet complete.
In examining the workings of a nation's foreign policy, at least three dimensions can be discerned: the structure of the organizations involved, the nature of the decision-making process, and the ways in which policy is implemented. These three dimensions are interrelated, and the processes of formulating and carrying out policy are often more complex than the structure of organizations would indicate.
Ministry of Foreign Affairs
Since 1949 the Ministry of Foreign Affairs has been one of China's most important ministries. Each area of foreign relations, divided either geographically or functionally, is overseen by a vice minister or assistant minister. For example, one vice minister's area of specialty was the Soviet Union and Eastern Europe, while another was responsible for the Americas and Australia. At the next level, the Ministry of Foreign Affairs was divided into departments, some geographical and some functional in responsibility. The regionally oriented departments included those concerned with Africa, the Americas and Oceania, Asia, the Middle East, the Soviet Union and Eastern Europe, Western Europe, Taiwan, and Hong Kong and Macao. The functional departments were responsible for administration, cadres, consular affairs, finance, information, international laws and treaties, international organizations and affairs, personnel, protocol, training and education, and translation. Below the department level were divisions, such as the United States Affairs Division under the Department of American and Oceanian Affairs.
A recurring problem for the foreign ministry and the diplomatic corps has been a shortage of qualified personnel. In the first years after the founding of the People's Republic, there were few prospective diplomats with international experience. Premier Zhou Enlai relied on a group of young people who had served under him in various negotiations to form the core of the newly established foreign ministry, and Zhou himself held the foreign ministry portfolio until 1958. In the second half of the 1960s, China's developing foreign affairs sector suffered a major setback during the Cultural Revolution, when higher education was disrupted, foreign-trained scholars and diplomats were attacked, all but one Chinese ambassador (to Egypt) were recalled to Beijing, and the Ministry of Foreign Affairs itself practically ceased functioning.
Since the early 1970s, the foreign affairs establishment has been rebuilt, and by the late 1980s, foreign affairs personnel were recruited from such specialized training programs as the ministry's Foreign Affairs College, College of International Relations, Beijing Foreign Languages Institute, and international studies departments at major universities. Foreign language study still was considered an important requirement, but it was increasingly supplemented by substantive training in foreign relations. Foreign affairs personnel benefited from expanded opportunities for education, travel, and exchange of information with the rest of the world. In addition, specialists from other ministries served in China's many embassies and consulates; for example, the Ministry of National Defense provided military attaches, the Ministry of Foreign Economic Relations and Trade provided commercial officers, and the Ministry of Culture and the State Education Commission provided personnel in charge of cultural affairs.
Ministry of National Defense
In any nation, the interrelation of the political and military aspects of strategy and national security necessitates some degree of military involvement in foreign policy. The military's views on defense capability, deterrence, and perceptions of threat are essential components of a country's global strategy. As of the late 1980s, however, little information was available on foreign policy coordination between the military and foreign policy establishments. The most important military organizations with links to the foreign policy community were the Ministry of National Defense and the party and state Central Military Commissions. The Ministry of National Defense provides military attaches for Chinese embassies, and, as of 1987, its Foreign Affairs Bureau dealt with foreign attaches and military visitors. Working-level coordination with the Ministry of Foreign Affairs was maintained when, for example, high-level military leaders traveled abroad. In addition, the Ministry of National Defense's strategic research arm, the Beijing Institute for International Strategic Studies, carried out research on military and security issues with foreign policy implications.
In the late 1980s, the most important link between the military and foreign policy establishments appeared to be at the highest level, particularly through the party and state Central Military Commissions and through Deng Xiaoping, who was concurrently chairman of both commissions. The views of the commissions' members on major foreign policy issues were almost certainly considered in informal discussions or in meetings of other highlevel organizations they also belonged to, such as the Political Bureau, the Secretariat, or the State Council. It was significant, though, that compared with earlier periods fewer military leaders served on China's top policy-making bodies during the 1980s.
Government and Party Organizations
By the late 1980s, more organizations were involved in China's foreign relations than at any time previously. High-level party and government organizations such as the Central Committee, Political Bureau, party Secretariat, party and state Central Military Commissions, National People's Congress, and State Council and such leaders as the premier, president, and party general secretary all were involved in foreign relations to varying degrees by virtue of their concern with major policy issues, both foreign and domestic. The party Secretariat and the State Council together carried the major responsibility for foreign policy decisions.
In the 1980s, as China's contacts with the outside world grew, party and government leaders at all levels increasingly were involved in foreign affairs. The president of the People's Republic fulfilled a ceremonial role as head of state and also was responsible for officially ratifying or abrogating treaties and agreements with foreign nations. In addition to meeting with foreign visitors, Chinese leaders, including the president, the premier, and officials at lower levels, traveled abroad regularly.
In the late 1980s, the Political Bureau, previously thought of as the major decision-making body, was no longer the primary party organization involved in foreign policy decision making. Instead, the State Council referred major decisions to the Secretariat for resolution and the Political Bureau for ratification. Under the party Secretariat, the International Liaison Department had primary responsibility for relations between the Chinese Communist Party and a growing number of foreign political parties. Other party organizations whose work was related to foreign relations were the United Front Work Department, responsible for relations with overseas Chinese, the Propaganda Department, and the Foreign Affairs Small Group.
Of the Chinese government institutions, the highest organ of state power, the National People's Congress, appeared to have only limited influence on foreign policy. In the 1980s the National People's Congress was becoming more active on the international scene by increasing its contacts with counterpart organizations in foreign countries. Through its Standing Committee and its Foreign Affairs Committee, the National People's Congress had a voice in foreign relations matters and occasionally prepared reports on foreign policy-related issues for other party and government bodies.
As the primary governmental organization under the National People's Congress, the State Council had a major role in foreign policy, particularly with regard to decisions on routine or specific matters, as opposed to greater questions of policy that might require party involvement. As in the past, the Ministry of Foreign Affairs was the most important institution involved in conducting day-to-day foreign relations, but by the 1980s many other ministries and organizations under the State Council had functions related to foreign affairs as well. These included the Ministry of Foreign Economic Relations and Trade, Ministry of Finance, Ministry of National Defense, Bank of China, People's Bank of China, and China Council for the Promotion of International Trade. In addition, over half of the ministries, overseeing such disparate areas as aeronautics, forestry, and public health, had a bureau or department concerned explicitly with foreign affairs. These offices presumably handled contacts between the ministry and its foreign counterparts.
Since 1949 a significant forum for Chinese foreign relations has been cultural or "people-to-people" diplomacy. The relative isolation of the People's Republic during its first two decades increased the importance of cultural exchanges and informal ties with people of other countries through mass organizations and friendship societies. In some cases, activities at this level have signaled important diplomatic breakthroughs, as was the case with the American-Chinese ping-pong exchange in 1971. In addition to educational and cultural institutions, many other organizations, including the media, women's and youth organizations, and academic and professional societies, have been involved in foreign relations. Two institutes responsible for this aspect of Chinese diplomacy were associated with the Ministry of Foreign Affairs and staffed largely by former diplomats: the Chinese People's Association for Friendship with Foreign Countries and the Chinese People's Institute of Foreign Affairs.
Ministry of Foreign Economic Relations and Trade
Since the late 1970s, economic and financial issues have become an increasingly important part of China's foreign relations. In order to streamline foreign economic relations, the Ministry of Foreign Economic Relations and Trade was established in 1982 through the merger of two commissions and two ministries. By the late 1980s, this ministry was the second most prominent ministry involved in the routine conduct of foreign relations. The ministry had an extremely broad mandate that included foreign trade, foreign investment, foreign aid, and international economic cooperation. Through regular meetings with the Ministry of Foreign Affairs, the Ministry of Foreign Economic Relations and Trade participated in efforts to coordinate China's foreign economic policy with other aspects of its foreign policy. It was unclear how thoroughly this was accomplished.
The Decision-Making Process
The most crucial foreign policy decisions in the mid-1980s were made by the highest-level leadership, with Deng Xiaoping as the final arbiter. A shift was underway, however, to strengthen the principles of collective and institutional decision making and, at the same time, to reduce party involvement in favor of increased state responsibility. In line with this trend, the State Council made foreign policy decisions regarding routine matters and referred only major decisions either to the party Secretariat or to informal deliberations involving Deng Xiaoping for resolution. When called upon to make decisions, the Secretariat relied largely on the advice of the State Council and members of China's foreign affairs community. The importance of the Political Bureau appeared to have lessened. Although individual members of the Political Bureau exerted influence on the shaping of foreign policy, the Political Bureau's role as an institution seemed to have become one of ratifying decisions, rather than formulating them. The division between party and government functions in foreign affairs as of the mid-1980s could therefore be summarized as party supremacy in overall policy making and supervision, with the government's State Council and ministries under it responsible for the daily conduct of foreign relations.
These high-level decision-making bodies comprised the apex of an elaborate network of party and government organizations and research institutes concerned with foreign policy. To support the formulation and implementation of policy, especially in a bureaucracy as complex and hierarchical as China's, there existed a network of small advisory and coordination groups. These groups functioned to channel research, provide expert advice, and act as a liaison between organizations. Perhaps the most important of these groups was the party Secretariat's Foreign Affairs Small Group. This group comprised key party and government officials, including the president, the premier, state councillors, the ministers of foreign affairs and foreign economic relations and trade, and various foreign affairs specialists, depending on the agenda of the meeting. The group possibly met weekly, or as required by circumstances. Liaison and advisory functions were provided by other groups, including the State Council's Foreign Affairs Coordination Point, the staff of the premier's and State Council's offices, and bilateral policy groups, such as one composed of ministers and vice ministers of the Ministry of Foreign Affairs and the Ministry of Foreign Economic Relations and Trade, which met at least every few months.
In the late 1980s, the decision-making process for foreign policy matters followed a fairly hierarchical pattern. If a particular ministry was unable to make a decision because the purview of other ministries was involved, it would attempt to resolve the issue through informal discussion or through an interagency group. If that was not successful or if higher-level consideration was needed, the problem might be referred to the Foreign Affairs Coordination Point or to select members of the State Council for review. Certain major decisions would then be discussed by the Foreign Affairs Small Group before consideration by the party Secretariat itself. If the issue was extremely controversial or important, the final decision would be directed to the highest-level leadership, particularly Deng Xiaoping.
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