A Study On "Double-Track System" Policy Toward China During Carter Period

Carter administration carried out "Double-Track System" policy toward China. It was not only to resist and balance the strategic security of the Soviet Union, but also to have the deep consideration and plan to evolve and reform China."Double-Track System" policy toward China during Carter period has a clear link character, and it was the summary and adjustment on practical foundation of the previous US administrations' policy to China, after the planning and preliminary operation of itself, establishing the legal frame for the future US to push China policy at the same time. It accumulates lessons, having a profound and lasting influence.The origin of "Double-Track System" policy toward China during Carter period lies on directly inheriting the principle heritage of Nixon and Ford administrations' pushing "Double-Track System" toward China. Meanwhile it also accepts expansion consciousness and destiny forming from the long-term American diplomatic history, two diplomatic tradition of realism and idealism, and the dream and myth of leading and reforming China. Moreover it has a close relationship with human rights foreign policy in the beginning of the Carter administration, and the Soviet detente strategy suffering serious setback and attack. It makes the diplomatic style of Carter administration changing from seeking morality and values' idealism in the beginning to seeking realism of balance of power and national realistic interests in later period.The keynote of Carter administration's "Double-Track System" policy toward China is based on "5·17" instruction issued by the president, which was on the eve of Brzezinski's visit to China in May1978. It experienced the struggle and compromise of bilateral diplomatic negotiation, especially the establishment of Sino-US diplomatic relations published in mid-December1978and Taiwan Relations Act passed through US Congress in April1979. From the jurisprudence aspects, it has already formed formally.After the US opened diplomatic relations with China, in the following two years Carter administration officially carried out "Double-Track System" policy toward China. On one hand, it recognizes the government of PRC as the sole legal government of China, and admits that Taiwan is part of China. In order to restrict outward expansion and penetration of Soviet and make China involved in the US-led international social system. In other words, it is not only actively engaging in dialogue, coordination and cooperation in the field of strategic security, but also having big push on the field of trade and cultural exchanges and mutual visits of people. On the other hand, under the cover of Taiwan Relations Act delimiting unofficial exchanges, the original and substantial relations remains unchangeable before US-Taiwan break off "diplomatic relations", and it never publicly admitted PRC sovereignty over Taiwan. The aim is to guard against and contain China, and through the successful Taiwan (including economic and politic) as the example and springboard, to influence and change the developmental model of future China, road and direction. It has double strategic purpose. It has ties with Taiwan in the field of military security, mainly through arms sales to Taiwan and helping Taiwan to fight force against Mainland China, and strengthening original close relations in economic and cultural and personnel exchanges.So the essence of Carter administration's China policy was taking a risk, like dancing between the two eggs. Before the establishment of Sino-US diplomatic relations, especially during the diplomatic negotiation, the center of American's China policy was to obey and serve the establishment of formal diplomatic relations between US and China. It took concealment and delay attitude to Taiwan authorities and US Congress without damaging the interest of Taiwan authorities. From1979to1980, the core of America's China policy tried to balance Mainland China and Taiwan, but lightly prefer to make up for the loss of Taiwan authorities from the event of breaking off diplomatic relations. Carter administration made use of the congress of anti-communist and supporting Taiwan, the unsatisfaction and complaint of Taiwan authorities, and the tradition that the White House and the State Department are restricted by the US Congress. Approving Taiwan Relations Act is the typical performance of US policy on Taiwan's adjustment. That is to say, the establishment of diplomatic relations opened a door for the new development of bilateral relations, and set up a safe channel. But Taiwan Relations Act closed part of the door and set a huge and thick block in the channel, leaving extreme hidden trouble and unstable factors.On the face of it, Carter administration was doing dynamic and balanced diplomacy between China government and Taiwan authorities, and carried out a policy of alternately striking and stroking, and that is the policy of carrots and sticks, which could gain benefits from the both sides. It seems that it is the best choice for the US. But the fact is that "Double-Track System" policy toward China often presents a dilemma for US about the Taiwan issue, doing a thankless task. The final result is that it could not make Taiwan a gain long and peaceful circumstance, and it completely offends the China government and people. And it totally runs counter to the original intention of America's China policy.