艾森豪政府對施亞努「中立主義」政策之認知與對策

Eisenhower and Cambodia: Leading Bureaucrats’Perception and Response towards Sihanouk’s“Neutralism”Policy

艾森豪總統任內，運用國家安全會議機制進行外交政策分析、整合與協調，制度化組織結構並強化其領導統御。經檢視文獻後，以組織做為研究途徑，無助於釐清外交政策目標制定的因果關係，亦無法了解決策官僚提出倡議之動機。本文透過官僚行為模式檢視艾森豪決策官僚與施亞努對「中立」認知的落差，呈現美柬雙方不同的立場。艾森豪決策官僚認為可透過軍事或經濟援助，影響柬埔寨成為親美的政權；然而，施亞努政府積極建構「中立」地位，將「中立」法案納入憲法。施亞努逐步親中的路線，是催化達春陰謀推翻施亞努的原因。本研究發現，艾森豪政府決策官僚對施亞努採「中立」政策的解讀不同，產生國務院內部官僚的爭辯以及國務卿與參謀長聯席會議主席的爭辯，導致艾森豪政府政策缺乏一致性。

Dwight D. Eisenhower utilized the National Security Council to integrate, coordinate his policy objectives in the conduct of foreign policy, and thereby strengthened his leadership. After careful review of current scholarship, using organization as an approach does little to explaining what shapes bureaucrats’perception of foreign-policy objectives, nor does it provide the rationale behind policy initiatives. This article examines the gap between the bureaucratic perception of“neutralism”and Sihanouk’s understanding of“neutrality”through the bureaucratic behavior model, presenting interpretation for the U.S. and Cambodia positions. Eisenhower’s decision-making bureaucrats believed that Cambodia could become a pro-American regime through military or economic aid; however, the Sihanouk government voluntarily established a“neutral”status and incorporated Neutral Law into the constitution. The inclination of pro-China policy is the main reason that catalyzed Dap Chhuon Plot. The study has found that Eisenhower’s foreign policy in Cambodia lacked of consistency because the decision-making bureaucrats interpreted Sihanouk’s“neutrality”policy differently, resulting in bureaucratic debates within the State Department and debates between the Secretary of State and the Chairman of the Joint Chiefs of Staff.