T20在G20全球治理中的作用
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摘要
20国集团(G20)是当下最重要的全球经济治理平台。在面临日新变化的全球治理难题时,新知识和创新性政策提案的输入对保障20国集团机制的有效作为极为重要。在20国集团官方认可的专业知识和政策输入机构中,20国智库(T20)的新知识和政策建言具有创新性、科学性和专业性,并已经成为G20峰会议题和政策选项的主要输入方和承诺执行监督方。本文立足T20的运作机理并选取G20"全球可持续发展政策"的相关案例,对T20的专业知识与政策选项的输入路径以及承诺执行监督功能进行了分析,认为T20在G20的全球经济治理中的知识输入和政策制定中具有建设性作用,但在机制内外和承诺执行监督方面仍存在公平和机制保障缺失等问题。
Nowadays, Group 20(hereafter G20) is well recognized as the key global governance forum. When G20 faces upcoming complex global issues or economic problems, the input of creative ideas and expertise as well as professional advice or policy alternatives is indispensable and beneficail. Think 20(hereafter T20), as one of the main three types of G20-officially-recognized policy and expertise providers, came into being in 2012 and has functioned well ever since. This paper examines the origin of T20 and its channels to transmit expertise and policy proposals onto G20 Summit agenda. Moreover, the paper finds out that T20 is an indispensable idea banker or idea broker and has played a constructive role in G20 global governance policy process by way of two cases studies. Additionally, the paper explores T20's role as a G20 compliance observer, and shows that T20 has some weak functions in G20 compliance and other aspects due to its "soft and informal" features. The typical weak points lie in these respects: firstly, less effective due to loosely organized T20 and informal institution feature; secondly, unsecured equality within T20 member countries and think tanks; thirdly, problems exist in the relationship between T20 and G20 member countries; lastly, unstable T20 budget source and informal institution of G20 itself. Nevertheless, T20 has been functioning for 7 years and contributed many thoughtful, frontier and creative ideas and policy alternatives onto G20 global governance policy process, which has won T20 a reputation among the G20 member countries.
Nowadays, Group 20(hereafter G20) is well recognized as the key global governance forum. When G20 faces upcoming complex global issues or economic problems, the input of creative ideas and expertise as well as professional advice or policy alternatives is indispensable and beneficail. Think 20(hereafter T20), as one of the main three types of G20-officially-recognized policy and expertise providers, came into being in 2012 and has functioned well ever since. This paper examines the origin of T20 and its channels to transmit expertise and policy proposals onto G20 Summit agenda. Moreover, the paper finds out that T20 is an indispensable idea banker or idea broker and has played a constructive role in G20 global governance policy process by way of two cases studies. Additionally, the paper explores T20's role as a G20 compliance observer, and shows that T20 has some weak functions in G20 compliance and other aspects due to its "soft and informal" features. The typical weak points lie in these respects: firstly, less effective due to loosely organized T20 and informal institution feature; secondly, unsecured equality within T20 member countries and think tanks; thirdly, problems exist in the relationship between T20 and G20 member countries; lastly, unstable T20 budget source and informal institution of G20 itself. Nevertheless, T20 has been functioning for 7 years and contributed many thoughtful, frontier and creative ideas and policy alternatives onto G20 global governance policy process, which has won T20 a reputation among the G20 member countries.
引文
(1)由于T20峰会在G20峰会前召开可能给利益集团提供影响T20的时机,且T20的政策建议也可能因时间差的原因被G20峰会忽略,因此,当2017年德国担任G20主席国时,T20峰会与G20峰会同时召开。但2018年的T20峰会仍提前召开了。
(2)这些T20网站分别是:http://www.t20germany.org/;http://www.t20china.org/;http://www.t20turkey.org/;https://t20argentina.org/。
(3)“Think 20(T20)Summit and Global Policy Dialogue Conference,” November 13, 2015. https://www.cigionline.org/events/think-20-t20-summit-and-global-policy-dialogue-conference,登录时间:2019年1月10日。
(1)Maria Monica Wihardja,“Think 20:the Role of Think Tanks in the G20 Process,” Speech at East Asia Forum, March 24, 2012.
(2)T20, Think 20 Global Solutions Dialogue:20 Solution Proposals for the G20 from T20Engagement Group, Bonn Germany, German Development Institute, 2017, p.1.
(3)Peter I. Hajnal, The G20:Evolution, Interrelationships, Documentation, New York:Routledge,2016, pp. 67–119.
(4)B20 Russia 2013, B20–G20 PARTNERSHIP FOR GROWTH AND JOBS:Recommendations from Business 20, 2013, Moscow, Russia:RSPP(Russian Union of Industrialists and Entrepreneurs)Publishing House, 2013. p. 18.
(5)“G20 leaders Launch Group to Promote Women’s Economic Empowerment,” September 8, 2015.http://www.unwomen.org/en/news/stories/2015/9/lakshmi-puri-attends-w20-launch,登录时间:2019年1月10日。
(1)Belay Begashaw et al.,“T20 Africa, G20 and Africa:Assessing Our Impact and Influence,”August 28, 2018, http://www.g20-insights.org/policy_briefs/t20-africa-g20-and-africa-assessing-our-impactand-influence/,登录时间:2019年1月10日。
(2)Bozkurt Aran,“Think 20 Summit:Building New Global Relationships—New Dynamics, New Vitality,NewProspects,”p.1,https://www.tepav.org.tr/upload/files/haber/1472741310-8.Bozkurt_Aran_Keynote_Speech.pdf,登录时间:2019年1月12日。
(3)“三驾马车”(G20 Troika)为G20的一个运行机制,是指上届主席国、本届主席国和下届主席国之间紧密衔接,以维持G20日常的运行、议题商榷和安排。该机制在2011年G20戛纳峰会公报中得以规范。
(1)“Think 20(T20)Conveners Present Ottawa Meeting Outcomes for G20 Consideration,” May 5,2015,https://www.cigionline.org/articles/think-20-t20-conveners-present-ottawa-meeting-outcomes-g20-consideration,登录时间:2019年1月12日。
(2)Wang Ying,“Experts to Offer G20 Policy Recommendations at Summit,” China Daily, 2016–07–29.
(1)John Kirton and Brittaney Warren, G20 Insights:T20 Recommendations Realized, Toronto,Canada:University of Toronto G20 Information Center, 2017.
(1)引自加拿大多伦多大学全球治理项目执行主任玛德琳·科克(Madeline Koch)2019年3月20 日给笔者的电子邮件。
(2)引自2018年11月10日9:30–11:30柯顿教授在上海外国语大学国际关系与公共事务学院604会议室的公开讲座《T20的发展前景》。
(3)这五位委员是:多伦多大学G20研究项目联席主任约翰·柯顿(John Kirton),德国发展研究所所长德克·梅斯勒(Dirk Messner),阿根廷促进公平与增长公共政策实施中心执行董事朱丽娅·庞雷斯(Julia Pomares),德国基尔世界经济研究所主席丹尼斯·J.斯诺威(Dennis J.Snower),印度能源和资源研究所常务董事莱娜·斯利瓦斯塔瓦(Leena Srivastava)。
(1)“T20博客”和“G20观察”都是T20进行政策沟通的平台,由“基尔世界经济研究所”和“德国发展研究所”共同发起并维护。
(2)Ministers for the Department of Industry, Innovation and Science, Address to the I20 Conference,Town Hall Brisbane, 14 November 2014.
(3)“Think 20 Chair’s Statement,” Antalya, November 14, 2015, http://www.t20turkey.org/eng/pages/blog/b43.html,登录时间:2019年1月12日。
(4)Bozkurt Aran,“Think 20 Summit:Building New Global Relationships—New Dynamics, New Vitality, New Prospects,” p. 3.
(1)“T20 Regional Seminar on Innovation and International Technology Diffusion,” Berlin, 18–19May, 2015, https://www.economic-policy-forum.org/wp-content/uploads/2016/02/T20-Regional-Seminaron-Innovation-and-Technology-Diffusion.pdf,登录时间:2019年1月12日。
(2)“Innovation 20(I 20)Summit Was Held on November 13 in Antalya,” Nov. 13, 2015; TEPAV Convenes the Think 20 Antalya Summit on Implementation of Sustainable Development Goals and the G20,Nov. 14, 2015.
(3)“Innovation and Technology Diffusion:Recommendations for the G20 Process,” May 2015, p. 1.
(4)“G20 Leaders’ Communique—Hangzhou Summit”, 4–5 September, 2016.
(1)“非洲马歇尔计划”由时任德国经济合作与发展部长穆勒(Gerd Müller)提出,“支援非洲倡议”由德国联邦经济和能源部(the Federal Ministry for Economic Affairs and Energy)提出。参见Evita Schmieg,“Africa—G20 and Proposals for Marshall Plans:New Instruments for New External EconomicSettings?”Stiftung WissenschaftundPolitik(GermanInstituteforInternationalandSecurity Affairs)Comments, Vol. 13, April 2017, pp. 2–3。
(2)German Development Institute,“Africa and the G20:Building Alliances for Sustainable Development,” https://www.die-gdi.de/veranstaltungen/africa-and-the-g20/,登录时间:2019年1月3日。
(1)The Communiquéof the T20 Africa Conference Co-Hosts,“Africa and the G20:Building Alliances for Sustainable Development,” pp. 1–2.
(2)G20峰会在筹备过程中有许多工作组参与,其中G20成员国和一些国际组织如世界银行、国际货币基金组织在这些工作组中都拥有常任席位,而非洲只有南非是G20成员国,因此许多非洲国家无法参与G20政策讨论,非洲大陆的发展诉求难以被G20关注。
(3)“T20 Present Proposals for G20 to German Government,” 15 June, 2017, https://www.ifw-kiel.de/publications/media-information/2017/t20-present-proposals-for-g20-to-german-government/,登录时间:2019年1月12日。
(4)“T20 Africa Standing Group Prepares Policy Recommendations for G20,” 20 Apr 2018.
(1)2013年5月非洲联盟在第21届首脑会议上提出了“2063年愿景”发展战略,旨在于2063年实现非洲的工业化。
(2)T20 Africa Standing Group,“COOPERATION WITH AFRICA:What Priorities for G20-Africa Cooperation:Synthesizing T20 Africa Recommendations,” pp. 7–8.
(1)1984年金登(John Kingdon)界定“政策窗口”为重要的议程设置机会。“政策窗口”是有可能实现政策变更的特殊时间段,当正常的策略环境受到干扰时就可能出现。当三个流——政治流(political stream)即公众舆论和政治状况;政策流(policy stream)即问题的可能解决方案;问题流(problem stream)即问题的属性和发展趋势,例如问题是变得越来越好,还是越来越糟,以及是否因为一次聚焦事件获得了公众和精英的关注——汇聚在一起,导致问题进入政策机构的议事议程时,“政策窗口”就会打开。参考Sarah Michaels, Nancy P. Goucher and Dan McCarthy,Policy Windows, Policy Change, and Organizational Learning:Watersheds in the Evolution of Watershed Management, Environ Manage, 2006, p. 984.
(1)这里指一个问题领域的决策是否需要专家技术知识,如果需要很多专业知识,比如在经济贸易政策领域,那么智库就有更多的参与政策决策的机会。此外,如果一个问题领域的决策周期相对更长,那么也会为智库参与政策提供更多的时机。
(2)安明博为美利坚大学国际关系学院教授和清华大学苏世民书院教授,2014–2015年间曾任国际研究协会主席。
(1)Amitav Acharya,“Engagement or Entrapment? Scholarship and Policymaking on Asian Regionalism,” International Studies Review, Vol. 13, No. 1, 2011, pp. 12–17.
(2)王文:《在全球亲历中国智库的孤单》,载《对外传播》,2015年7月,第40页。
(2)这些T20网站分别是:http://www.t20germany.org/;http://www.t20china.org/;http://www.t20turkey.org/;https://t20argentina.org/。
(3)“Think 20(T20)Summit and Global Policy Dialogue Conference,” November 13, 2015. https://www.cigionline.org/events/think-20-t20-summit-and-global-policy-dialogue-conference,登录时间:2019年1月10日。
(1)Maria Monica Wihardja,“Think 20:the Role of Think Tanks in the G20 Process,” Speech at East Asia Forum, March 24, 2012.
(2)T20, Think 20 Global Solutions Dialogue:20 Solution Proposals for the G20 from T20Engagement Group, Bonn Germany, German Development Institute, 2017, p.1.
(3)Peter I. Hajnal, The G20:Evolution, Interrelationships, Documentation, New York:Routledge,2016, pp. 67–119.
(4)B20 Russia 2013, B20–G20 PARTNERSHIP FOR GROWTH AND JOBS:Recommendations from Business 20, 2013, Moscow, Russia:RSPP(Russian Union of Industrialists and Entrepreneurs)Publishing House, 2013. p. 18.
(5)“G20 leaders Launch Group to Promote Women’s Economic Empowerment,” September 8, 2015.http://www.unwomen.org/en/news/stories/2015/9/lakshmi-puri-attends-w20-launch,登录时间:2019年1月10日。
(1)Belay Begashaw et al.,“T20 Africa, G20 and Africa:Assessing Our Impact and Influence,”August 28, 2018, http://www.g20-insights.org/policy_briefs/t20-africa-g20-and-africa-assessing-our-impactand-influence/,登录时间:2019年1月10日。
(2)Bozkurt Aran,“Think 20 Summit:Building New Global Relationships—New Dynamics, New Vitality,NewProspects,”p.1,https://www.tepav.org.tr/upload/files/haber/1472741310-8.Bozkurt_Aran_Keynote_Speech.pdf,登录时间:2019年1月12日。
(3)“三驾马车”(G20 Troika)为G20的一个运行机制,是指上届主席国、本届主席国和下届主席国之间紧密衔接,以维持G20日常的运行、议题商榷和安排。该机制在2011年G20戛纳峰会公报中得以规范。
(1)“Think 20(T20)Conveners Present Ottawa Meeting Outcomes for G20 Consideration,” May 5,2015,https://www.cigionline.org/articles/think-20-t20-conveners-present-ottawa-meeting-outcomes-g20-consideration,登录时间:2019年1月12日。
(2)Wang Ying,“Experts to Offer G20 Policy Recommendations at Summit,” China Daily, 2016–07–29.
(1)John Kirton and Brittaney Warren, G20 Insights:T20 Recommendations Realized, Toronto,Canada:University of Toronto G20 Information Center, 2017.
(1)引自加拿大多伦多大学全球治理项目执行主任玛德琳·科克(Madeline Koch)2019年3月20 日给笔者的电子邮件。
(2)引自2018年11月10日9:30–11:30柯顿教授在上海外国语大学国际关系与公共事务学院604会议室的公开讲座《T20的发展前景》。
(3)这五位委员是:多伦多大学G20研究项目联席主任约翰·柯顿(John Kirton),德国发展研究所所长德克·梅斯勒(Dirk Messner),阿根廷促进公平与增长公共政策实施中心执行董事朱丽娅·庞雷斯(Julia Pomares),德国基尔世界经济研究所主席丹尼斯·J.斯诺威(Dennis J.Snower),印度能源和资源研究所常务董事莱娜·斯利瓦斯塔瓦(Leena Srivastava)。
(1)“T20博客”和“G20观察”都是T20进行政策沟通的平台,由“基尔世界经济研究所”和“德国发展研究所”共同发起并维护。
(2)Ministers for the Department of Industry, Innovation and Science, Address to the I20 Conference,Town Hall Brisbane, 14 November 2014.
(3)“Think 20 Chair’s Statement,” Antalya, November 14, 2015, http://www.t20turkey.org/eng/pages/blog/b43.html,登录时间:2019年1月12日。
(4)Bozkurt Aran,“Think 20 Summit:Building New Global Relationships—New Dynamics, New Vitality, New Prospects,” p. 3.
(1)“T20 Regional Seminar on Innovation and International Technology Diffusion,” Berlin, 18–19May, 2015, https://www.economic-policy-forum.org/wp-content/uploads/2016/02/T20-Regional-Seminaron-Innovation-and-Technology-Diffusion.pdf,登录时间:2019年1月12日。
(2)“Innovation 20(I 20)Summit Was Held on November 13 in Antalya,” Nov. 13, 2015; TEPAV Convenes the Think 20 Antalya Summit on Implementation of Sustainable Development Goals and the G20,Nov. 14, 2015.
(3)“Innovation and Technology Diffusion:Recommendations for the G20 Process,” May 2015, p. 1.
(4)“G20 Leaders’ Communique—Hangzhou Summit”, 4–5 September, 2016.
(1)“非洲马歇尔计划”由时任德国经济合作与发展部长穆勒(Gerd Müller)提出,“支援非洲倡议”由德国联邦经济和能源部(the Federal Ministry for Economic Affairs and Energy)提出。参见Evita Schmieg,“Africa—G20 and Proposals for Marshall Plans:New Instruments for New External EconomicSettings?”Stiftung WissenschaftundPolitik(GermanInstituteforInternationalandSecurity Affairs)Comments, Vol. 13, April 2017, pp. 2–3。
(2)German Development Institute,“Africa and the G20:Building Alliances for Sustainable Development,” https://www.die-gdi.de/veranstaltungen/africa-and-the-g20/,登录时间:2019年1月3日。
(1)The Communiquéof the T20 Africa Conference Co-Hosts,“Africa and the G20:Building Alliances for Sustainable Development,” pp. 1–2.
(2)G20峰会在筹备过程中有许多工作组参与,其中G20成员国和一些国际组织如世界银行、国际货币基金组织在这些工作组中都拥有常任席位,而非洲只有南非是G20成员国,因此许多非洲国家无法参与G20政策讨论,非洲大陆的发展诉求难以被G20关注。
(3)“T20 Present Proposals for G20 to German Government,” 15 June, 2017, https://www.ifw-kiel.de/publications/media-information/2017/t20-present-proposals-for-g20-to-german-government/,登录时间:2019年1月12日。
(4)“T20 Africa Standing Group Prepares Policy Recommendations for G20,” 20 Apr 2018.
(1)2013年5月非洲联盟在第21届首脑会议上提出了“2063年愿景”发展战略,旨在于2063年实现非洲的工业化。
(2)T20 Africa Standing Group,“COOPERATION WITH AFRICA:What Priorities for G20-Africa Cooperation:Synthesizing T20 Africa Recommendations,” pp. 7–8.
(1)1984年金登(John Kingdon)界定“政策窗口”为重要的议程设置机会。“政策窗口”是有可能实现政策变更的特殊时间段,当正常的策略环境受到干扰时就可能出现。当三个流——政治流(political stream)即公众舆论和政治状况;政策流(policy stream)即问题的可能解决方案;问题流(problem stream)即问题的属性和发展趋势,例如问题是变得越来越好,还是越来越糟,以及是否因为一次聚焦事件获得了公众和精英的关注——汇聚在一起,导致问题进入政策机构的议事议程时,“政策窗口”就会打开。参考Sarah Michaels, Nancy P. Goucher and Dan McCarthy,Policy Windows, Policy Change, and Organizational Learning:Watersheds in the Evolution of Watershed Management, Environ Manage, 2006, p. 984.
(1)这里指一个问题领域的决策是否需要专家技术知识,如果需要很多专业知识,比如在经济贸易政策领域,那么智库就有更多的参与政策决策的机会。此外,如果一个问题领域的决策周期相对更长,那么也会为智库参与政策提供更多的时机。
(2)安明博为美利坚大学国际关系学院教授和清华大学苏世民书院教授,2014–2015年间曾任国际研究协会主席。
(1)Amitav Acharya,“Engagement or Entrapment? Scholarship and Policymaking on Asian Regionalism,” International Studies Review, Vol. 13, No. 1, 2011, pp. 12–17.
(2)王文:《在全球亲历中国智库的孤单》,载《对外传播》,2015年7月,第40页。