从“非洲契约”看德国对非洲政策的转型
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摘要
德国于2017年担任二十国集团会议主席国时推出了"非洲契约",标志着德国突破了长期以来坚持的基于价值和利益双导向,以及在跨大西洋伙伴关系和欧盟框架下开展对非合作的政策传统,更加注重现实利益导向和增强德国在全球发展治理中的影响力。"非洲契约"和"非洲马歇尔计划"共同构成了德国对非政策的新框架,展现出德国更为积极主动的全球发展领导者和责任承担者的形象。德国对非政策的转型动力来自于地缘政治和经济多重因素考虑,特别是难民危机的压力。德国通过"非洲契约"提升对非政策影响力面临机制、资金和美国因素等多重挑战,总的来看对于提升德国对非政策的国际影响力作用有限,其政治意义大于实质的经济发展意义。从德国对非政策调整的影响和启示看,中国可以有选择地借鉴德国经验,将中国发展治理方案国际化,更多动员私人和社会力量参与对非合作,同时也要警惕"非洲契约"从多边层面给中国对非投资带来的规制效应。
"Compact with Africa" came as a significant manifestation of Germany's breaking up with its past long-term policy tradition of the combination of double goals of value and interest as well as the usual practice of putting African cooperation under the framework of the trans-Atlantic partnership and EU guidance.Instead,Germany now puts more weight in the interest-guided policies and works on enhancing Germany's influence in global development governance."Compact with Africa" and the Marshall Plan with Africa constitute the new framework for Germany's African Policy,which has shown Germany's role as a more internationalized and proactive leader and contributor in international development cooperation.The driving force that pushes the transformation of Germany's Africa policy is from the geopolitical and economic multiple factors,especially the pressure of the refugee crisis.However,Germany through the "Compact with Africa" to enhance its policy influence still faces multiple challenges of institutional deficiency,funding gap,and lack of American support,which has led to its limited role in enhancing the influence of Germany's African policy and granted it with more political meaning rather than practical economic benefits.China can learn from German experience to help internationalize China's development governance plan,and further mobilize more private and social forces to participate in the cooperation with Africa.At the same time,China should also be alert to the regulation effect of "Compact with Africa" on Chinese investment in Africa from the multilateral level.
"Compact with Africa" came as a significant manifestation of Germany's breaking up with its past long-term policy tradition of the combination of double goals of value and interest as well as the usual practice of putting African cooperation under the framework of the trans-Atlantic partnership and EU guidance.Instead,Germany now puts more weight in the interest-guided policies and works on enhancing Germany's influence in global development governance."Compact with Africa" and the Marshall Plan with Africa constitute the new framework for Germany's African Policy,which has shown Germany's role as a more internationalized and proactive leader and contributor in international development cooperation.The driving force that pushes the transformation of Germany's Africa policy is from the geopolitical and economic multiple factors,especially the pressure of the refugee crisis.However,Germany through the "Compact with Africa" to enhance its policy influence still faces multiple challenges of institutional deficiency,funding gap,and lack of American support,which has led to its limited role in enhancing the influence of Germany's African policy and granted it with more political meaning rather than practical economic benefits.China can learn from German experience to help internationalize China's development governance plan,and further mobilize more private and social forces to participate in the cooperation with Africa.At the same time,China should also be alert to the regulation effect of "Compact with Africa" on Chinese investment in Africa from the multilateral level.
引文
(1)“G20 Leaders’ Declaration:Shaping an Interconnected World”,July 8,2017,Hamburg,http://www.g20.utoronto.ca/2017/2017-G20-leaders-declaration.html,2019-01-10.
(2)G20 Information Center,“Annex to G20 Leader Declaration G20 Africa Partnership”,July 8,2017,http://www.g20.utoronto.ca/2017/2017-g20-annex-partnership-africa.html,2019-01-10.
(3)G20 Information Center,“Buenos Aires Annual Progress Report on G20 Development Commitments”,http://www.g20.utoronto.ca,2019-01-18.
(4)Germany Federal Foreign Office,“Promoting Investment in Africa:Compact with Africa”,29 October,2018,https://www.auswaertiges-amt.de/en/aussenpolitik/regionaleschwerpunkte/afrika/compact-with-africa-berlin/2155724,2019-01-10.
(5)Ibid.
(6)Schmieg,E.,“Africa-G20 and Proposals for Marshall Plans:New Instruments for New External Economic Settings?”,SWP Comments,13/2017,https://nbn-resolving.org/urn:nbn:de:0168-ssoar-51935-7,2019-01-10.
(7)The Federal Government,“Creating Prospects in Africa and the Middle East”,May 17,2017,https://www.bundesregierung.de/breg-en/search/creating-prospects-in-africa-and-the-middle-east-450760,2019-01-18.
(8)伍慧萍:《德国难民和移民政策的调整趋势与影响》,载《当代世界》2018年第9期,第25页。
(9)郑春荣:《全球治理视角下的德国与G20》,载《同济大学学报》(社会科学版)2017年第2期,第47页。
(10)郑春荣:《“默克尔4.0政府”的内政、外交走向》,载《德国发展报告(2018)》,社会科学文献出版社,2018年版,第15页。
(11)张海冰:《基于“两个导向”和“两个轴心”的德国对非政策》,载《非洲发展报告(2013-2014)》,社会科学文献出版社,2014年版,第54页。
(12)肖洋:《外交的文化阐释·德国卷》,知识产权出版社,2012年版,第296～297页。
(13)Federal Foreign Office,“Germany and Africa:A Strategy Paper by the German Government”,June 2011,https://www.auswaertiges-amt.de/EN/Infoservice/Broschueren/Uebersicht_node.html?https=1,2019-01-10.
(14)Federal Ministry for Economic Cooperation and Development,“Africa and Europe-A New Partnership for Development,Peace and a Better Future,Cornerstones of a Marshall Plan with Africa”,p.7,http://www. bmz.de/en/publications/type_of_publication/information_flyer/information_brochures/Materialie270_africa_marshallplan.pdf,2019-01-10.
(15)Federal Foreign Office,“Germany and Africa:A Strategy Paper by the German Government”,June 2011,https://www.auswaertiges-amt.de/EN/Infoservice/Broschueren/Uebersicht_node.html?https=1,2019-01-10.
(16)Federal Ministry for Economic Cooperation and Development,“A New Partnership for Development,Peace and a Better Future:A Marshall Plan with Africa”,p.15,http://www.bmz.de/en/countries_regions/marshall_plan_with_africa/index.html,2019-01-10.
(17)连玉如:《国际政治与德国》,北京大学出版社,2012年版,第3页。
(18)“The Marshall Plan at 70:What We Must Remember and What We Must Do for the Future”,Speech by Federal Foreign Minister Sigmar Gabriel at the Center for Strategic and International Studies,Washington,DC,https://www.auswaertiges-amt.de/en/newsroom/news/170518-bm-marshall-plan-70/290066,2019-01-10.
(19)《德国媒体如何评述汉堡G20峰会?”》,载《环球时报》2017年7月13日。
(20)“Trump’s Newly Unveiled Strategy Will Advance U.S.-Africa Relations”,https://www. heritage.org/africa/commentary/trumps-newly-unveiled-strategy-will-advance-us-africa-relations,2018-12-14.
(21)Brett Schaefer and Anthony Kim,“The U.S.Should Employ Foreign Aid in Support of U.S.Policy at the UN”,October 5,2018,https://www.heritage.org/global-politics/report/the-us-should-employ-foreign-aid-support-us-policy-the-un,2019-01-10.
(22)Jann Lay,“The G20 Compact with Africa:An Incomplete Initiative”,GIGA German Institute of Global and Area Studies,https://www.ssoar.info/ssoar/bitstream/handle/document/52094/ssoar-2017-lay-The_G20_Compact_with_Africa.pdf?sequence=1,2019-01-10.
(23)《德国积极推动G20非洲契约,外界褒贬不一》,载中国驻卢旺达使馆经商处网站:http://rw.mofcom.gov.cn/article/jmxw/201811/20181102806039.shtml,2019-01-10。
(24)The Federal Government,“Education Central to Development Policy”,18 May 2017,https://www.bundesregierung.de/breg-en/search/education-central-to-development-policy-458556,2019-01-18.
(25)Federal Ministry for Economic Cooperation and Development,“The German Government’s 14th Development Policy Report,Development Policy White Paper-Executive Summary”,p.29,May 2013,http://www.bmz.de/en/publications/archiv/topics/development_policy/Weissbuch.pdf,2019-01-18.
(26)Federal Ministry for Economic Cooperation and Development,“Development Policy as Future-Oriented Peace Policy,The German Government’s 15th Development Policy Report”,July 2017,http://www.bmz.de/en/publications/type_of_publication/information_flyer/information_brochures/Materialie305_development_policy.pdf,2019-01-18.
(27)“Priorities of the 2017 G20 Summit”,Berlin,1 December,2016,p.2,https://www.g20.org/Content/DE/_Anlagen/G7_G20/2016-g20-praesidentschaftspapier-en.pdf?__blob=publicationFile&v=1,2019-01-18.
(28)Federal Ministry for Economic Cooperation and Development,“A New Partnership for Development,Peace and A Better Future:A Marshall Plan with Africa”,p.13,http://www.bmz.de/en/countries_regions/marshall_plan_with_africa/index.htm,2019-01-18.
(2)G20 Information Center,“Annex to G20 Leader Declaration G20 Africa Partnership”,July 8,2017,http://www.g20.utoronto.ca/2017/2017-g20-annex-partnership-africa.html,2019-01-10.
(3)G20 Information Center,“Buenos Aires Annual Progress Report on G20 Development Commitments”,http://www.g20.utoronto.ca,2019-01-18.
(4)Germany Federal Foreign Office,“Promoting Investment in Africa:Compact with Africa”,29 October,2018,https://www.auswaertiges-amt.de/en/aussenpolitik/regionaleschwerpunkte/afrika/compact-with-africa-berlin/2155724,2019-01-10.
(5)Ibid.
(6)Schmieg,E.,“Africa-G20 and Proposals for Marshall Plans:New Instruments for New External Economic Settings?”,SWP Comments,13/2017,https://nbn-resolving.org/urn:nbn:de:0168-ssoar-51935-7,2019-01-10.
(7)The Federal Government,“Creating Prospects in Africa and the Middle East”,May 17,2017,https://www.bundesregierung.de/breg-en/search/creating-prospects-in-africa-and-the-middle-east-450760,2019-01-18.
(8)伍慧萍:《德国难民和移民政策的调整趋势与影响》,载《当代世界》2018年第9期,第25页。
(9)郑春荣:《全球治理视角下的德国与G20》,载《同济大学学报》(社会科学版)2017年第2期,第47页。
(10)郑春荣:《“默克尔4.0政府”的内政、外交走向》,载《德国发展报告(2018)》,社会科学文献出版社,2018年版,第15页。
(11)张海冰:《基于“两个导向”和“两个轴心”的德国对非政策》,载《非洲发展报告(2013-2014)》,社会科学文献出版社,2014年版,第54页。
(12)肖洋:《外交的文化阐释·德国卷》,知识产权出版社,2012年版,第296～297页。
(13)Federal Foreign Office,“Germany and Africa:A Strategy Paper by the German Government”,June 2011,https://www.auswaertiges-amt.de/EN/Infoservice/Broschueren/Uebersicht_node.html?https=1,2019-01-10.
(14)Federal Ministry for Economic Cooperation and Development,“Africa and Europe-A New Partnership for Development,Peace and a Better Future,Cornerstones of a Marshall Plan with Africa”,p.7,http://www. bmz.de/en/publications/type_of_publication/information_flyer/information_brochures/Materialie270_africa_marshallplan.pdf,2019-01-10.
(15)Federal Foreign Office,“Germany and Africa:A Strategy Paper by the German Government”,June 2011,https://www.auswaertiges-amt.de/EN/Infoservice/Broschueren/Uebersicht_node.html?https=1,2019-01-10.
(16)Federal Ministry for Economic Cooperation and Development,“A New Partnership for Development,Peace and a Better Future:A Marshall Plan with Africa”,p.15,http://www.bmz.de/en/countries_regions/marshall_plan_with_africa/index.html,2019-01-10.
(17)连玉如:《国际政治与德国》,北京大学出版社,2012年版,第3页。
(18)“The Marshall Plan at 70:What We Must Remember and What We Must Do for the Future”,Speech by Federal Foreign Minister Sigmar Gabriel at the Center for Strategic and International Studies,Washington,DC,https://www.auswaertiges-amt.de/en/newsroom/news/170518-bm-marshall-plan-70/290066,2019-01-10.
(19)《德国媒体如何评述汉堡G20峰会?”》,载《环球时报》2017年7月13日。
(20)“Trump’s Newly Unveiled Strategy Will Advance U.S.-Africa Relations”,https://www. heritage.org/africa/commentary/trumps-newly-unveiled-strategy-will-advance-us-africa-relations,2018-12-14.
(21)Brett Schaefer and Anthony Kim,“The U.S.Should Employ Foreign Aid in Support of U.S.Policy at the UN”,October 5,2018,https://www.heritage.org/global-politics/report/the-us-should-employ-foreign-aid-support-us-policy-the-un,2019-01-10.
(22)Jann Lay,“The G20 Compact with Africa:An Incomplete Initiative”,GIGA German Institute of Global and Area Studies,https://www.ssoar.info/ssoar/bitstream/handle/document/52094/ssoar-2017-lay-The_G20_Compact_with_Africa.pdf?sequence=1,2019-01-10.
(23)《德国积极推动G20非洲契约,外界褒贬不一》,载中国驻卢旺达使馆经商处网站:http://rw.mofcom.gov.cn/article/jmxw/201811/20181102806039.shtml,2019-01-10。
(24)The Federal Government,“Education Central to Development Policy”,18 May 2017,https://www.bundesregierung.de/breg-en/search/education-central-to-development-policy-458556,2019-01-18.
(25)Federal Ministry for Economic Cooperation and Development,“The German Government’s 14th Development Policy Report,Development Policy White Paper-Executive Summary”,p.29,May 2013,http://www.bmz.de/en/publications/archiv/topics/development_policy/Weissbuch.pdf,2019-01-18.
(26)Federal Ministry for Economic Cooperation and Development,“Development Policy as Future-Oriented Peace Policy,The German Government’s 15th Development Policy Report”,July 2017,http://www.bmz.de/en/publications/type_of_publication/information_flyer/information_brochures/Materialie305_development_policy.pdf,2019-01-18.
(27)“Priorities of the 2017 G20 Summit”,Berlin,1 December,2016,p.2,https://www.g20.org/Content/DE/_Anlagen/G7_G20/2016-g20-praesidentschaftspapier-en.pdf?__blob=publicationFile&v=1,2019-01-18.
(28)Federal Ministry for Economic Cooperation and Development,“A New Partnership for Development,Peace and A Better Future:A Marshall Plan with Africa”,p.13,http://www.bmz.de/en/countries_regions/marshall_plan_with_africa/index.htm,2019-01-18.
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