看不見的敵人：911後美國「戰爭總統」角色之轉變

The Invisible Enemy: The Transformation of the U.S. ''Wartime President'' Role after 9/11

時局紛亂，常見國家領導人藉由創造外部敵人，以拉抬自身在國內的民調聲望，遂行政治目的，作為全球霸權的美國亦不例外。美國總統趁戰時民氣可用，擴張權力與影響力，並促使國會重視國家利益與國內團結，而願意通過政府預算以及甚至那些平時不可能被接受的法案。舉凡在第二次世界大戰領導美國的小羅斯福總統，以及在911事件後發動反恐戰爭的小布希總統，都演示了如何成為美國史上最為成功的「戰爭總統」。2020年美國本土爆發新冠疫情，欲爭取連任的川普總統公開宣示將對抗「看不見的敵人」，試圖複製「戰爭總統」的策略，無奈並未奏效。
本文將簡介美國「戰爭總統」理論與實例，包括川普的「非典型」作風，並分析911事件後，外交單邊主義與反恐愛國主義在美國大行其道，美國在界定敵人上認知卻為何逐漸轉為不明確、甚至無形，以及這種改變對美國總統權力仰賴的「說服之權」以及「戰爭總統」效果的影響。

In times of turmoil, it is not uncommon for national leaders to bolster domestic approval ratings and advance political agendas by constructing external threats. The United States (U.S.), as a global hegemon, is no exception. U.S. presidents have historically capitalized on wartime sentiment to expand executive power and influence, thereby securing congressional support for national unity and interest. This dynamic often facilitates the passage of government budgets and legislation that might otherwise encounter substantial resistance during peacetime. Prominent examples include President Franklin D. Roosevelt during World War II and President George W. Bush in the aftermath of the September 11 attacks—both of whom exemplified the role of the“wartime president”in American political history. In 2020, amid the domestic outbreak of the COVID-19 pandemic, President Donald J. Trump—actively seeking re-election—publicly declared himself a“wartime president”in a fight against the“invisible enemy,”in an effort to replicate this political strategy. However, his attempt ultimately failed to achieve its intended effect.
This paper examines the theoretical framework and historical precedents of the American“wartime president,”with particular attention to Trump’s atypical approach. It further investigates the post-9/11 rise of unilateral foreign policy and patriotic anti-terrorism rhetoric in the U.S., alongside the growing ambiguity—and eventual intangibility—of perceived external threats. Finally, the paper explores how these shifts have influenced presidential reliance on the“power to persuade”and the evolving efficacy of the“wartime president”model.