APEC組織運作建制化的發展：「半拘束性決議」的出現與「秘書處強化」為例

The Development of APEC's Institutionalization: The Emergence of a Semi-binding Decision and the Institutional Enhancement of its Secretariat

做為亞太地區層級最高的區域官方論壇，APEC在成立之初就被設計為相對鬆散的「論壇」形式，俾結合發展程度與戰略利益各異的環太平洋國家加入。其強調共識決、自願主義、不具拘束性的決議等特質，以及組織上資源稀少的秘書處等特性，歷來被懷疑論者認為是其運作效度不彰的原因之一。然而，進入二十一世紀以來，APEC確曾出現「半拘束性的決議」和「秘書處強化」的事例，與其草創時的「論壇」體質相背。本文以「偏差的動員」概念為核心，釐析這兩項事例背後的政治動力何在、所取得的成就，以及侷限性。由於全球與區域變局所帶來的壓力，本文主張APEC組織運作方式的有必要續朝提升建制化的方向前進。類似的努力在中、美戰略關係惡化的情況下，勢將面對區域內的價值分歧、交疊的政治衝突軸線，以及讓渡部分主權等課題的挑戰。

APEC was established in the late 1980s as a non-binding regional forum, rather than a formal international organization. Its flexible, informal way of operation helps its members to work together given their diversities in terms of their development level and strategic interests. However, skeptics believe APEC's ineffectiveness is a result of its loose way of operation aforementioned. In the first two decades of the 21st century, there were cases that dismissed APEC of its “forum” nature, including the emergence of a semi-binding decision, as well as the institutional enhancement of its Secretariat. Utilizing the concept of “mobilization of bias”, this paper attempts to offer an historical explanation of these two cases, as well as an initial assessment of what they have achieved and the limitations encountered. The author argues that, in order to cope with the fast changing political economic environment in the region, APEC will need to be much more institutionalized. Further institutionalization, however, will meet challenges rooted in the divergent value systems held by its respective members, superimposed political cleavages in the region, as well as power delegation issues.