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联合国改革,路在何方?

2017-09-21 11:32:29   国际在线

联合国改革不是一个新话题。此前,加利、安南和潘基文三任秘书长都推动联合国进行过改革,但都未实现国际社会的期盼。第72届联大已于9月12日开幕。除了峰会,每届联大的高级别会议和一般性辩论是大会的高潮。今年,是古特雷斯担任联合国秘书长和特朗普担任美国总统后的首次联大,因此格外引人关注。

特朗普在联合国的首秀是主持联合国改革高级别会议并发表演讲,他提出了联合国改革的十点计划。古特雷斯则向会员国提交了重组秘书处和平与安全支柱的改革建议。上月底,我外交部公布了第72届联大中方立场文件,再次强调中方支持联合国进行全方位改革、增加发展中国家代表性和发言权的原则立场。

联合国改革,意味着利益和权力的重新调整和分配,不同会员国和阵营都有各自的诉求。美国一直想减少对联合国的投入,要求提高联合国的管理效力。英法为代表的传统发达国家希望维持在联合国的既有优势地位,而德国和日本这样的新兴发达国家和印度、巴西等新兴发展中大国则提出要进入安理会分享权力。更多的中小国家希望联合国帮助其减少贫困和改善民生,同时主张限制大国在联合国的特权。

联合国改革要平衡这些不同的利益,但要同时满足各种诉求显然是不可能的。改革应立足于提高联合国解决全球性难题和挑战的能力,并引领世界的可持续和平与发展。会员国应基于发挥联合国在国际事务中的核心作用这一共识,团结合作,支持联合国的和平、发展和人权事业。

同时,联合国目前的机构设置和功能运作确实存在一些弊端,难以有效应对国际社会的各种新型威胁和挑战,因此需要加快改革,增强协调各国共同应对全球性挑战的能力。

遗憾的是,进入新世纪以来,美国不断从多边主义后退。特朗普政府在“美国优先”的指导下,计划大幅削减联合国维和经费和对国际组织的资助。这实际上是一种短视和缺乏战略眼光的实用主义政策。

美国是联合国最主要的创始国,在联合国有特殊的地位和影响,美国利用联合国实现的国家利益和外交目标不可估量。联合国及其大量机构的总部设在美国,这是美国作为超级大国的重要标志和副产品,为美国带来了无限的软力量和无形的好处。美国分担的联合国会费和维和摊款最多,是历史形成的,也是其特殊地位和影响的一个来源和体现。美国对联合国财政贡献大,但也要看到美国在联合国有特权,包括担任很多领导职务和高级管理岗位。特朗普提出联合国费用分担要合理,这在原则上是对的。但同样重要的是,权力分配也要合理。正如古特雷斯秘书长所警告的,如果美国政府退出其全球领袖角色,会有其他国家取而代之。一方面要减少对联合国的支持,另一方面又想继续享受在联合国的特权,这肯定不是联合国改革的正道。

近20年来,中国分担联合国会费比额和维和摊款大幅提高。中国还通过设立中国联合国和平发展基金和南南合作援助基金,并资助联合国多个专门机构,不断加强对联合国的支持力度。中国还很少有联合国机构的总部、地区中心和办事处,中国籍职员在联合国机构的代表性也严重不足。但中国的做法不是埋怨和指责,更不是“中国优先”,而是通过倡导合作共赢的新型国际关系、共商共建共享的全球治理、打造人类命运共同体、与联合国合作共建“一带一路”、积极参与维和行动、推动可持续发展议程的落实等,始终支持联合国的工作,不断加强与联合国的合作。

通过职能整合和明确分工以提高管理效率和效力,致力于预防性外交以避免冲突的发生和升级并实现可持续和平,推动经济、社会和环境的均衡和包容性发展,从而不仅为会员国政府更为世界人民提供更好的服务,以人为本,这才是联合国改革的希望之路。

(作者:张贵洪是复旦大学联合国研究中心主任)

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