
历经三年多,华盛顿在应对苏丹令人心碎的战争时,依然步履蹒跚、应对失当。本周,美国可能无意间将自己逼入了一个外交死角,使其自身和苏丹军队都找不到退出路径,令停火协议变得更加遥不可及。
After more than three years, Washington continues to fumble its way through a response to Sudan’s heart-wrenching war. This past week, it may have inadvertently backed itself into a diplomatic corner that offers no options for either itself or Sudan’s army to exit, putting a ceasefire even further out of reach.
当世界各国领导人齐聚纽约参加第81届联合国大会时,华盛顿向苏丹武装部队(SAF)领导人施加了巨大压力,要求其签署一项无条件停火协议,以冻结冲突并允许关键人道主义援助物资畅通无阻地进入。
As world leaders gathered in New York for the 81st session of the United Nations General Assembly, Washington pressed hard on the leaders of the Sudanese armed forces (SAF) to sign an unconditional ceasefire that would freeze the conflict and allow unimpeded access for critical aid deliveries.
过去,叛军快速支援部队(RSF)民兵在其主要地区支持者的充分外交和公关支持下,总是迅速同意任何能使其与试图推翻的正规军处于平等地位的协议。然而,由于RSF既无意愿也无能力执行任何停火条款,其和平承诺的价值,大概只能从一支犯下多轮种族灭绝罪行的雇佣军身上得到预期。尽管如此,美国官员在外交场合仍反复将RSF称为更具“合作意愿的一方”。
In the past, the rebel Rapid Support Forces militia, using the ample diplomatic and public relations support from its chief regional backer, has been quick to agree to any deal that puts it on equal footing with the national army it is seeking to unseat. But with no intention or ability to implement the terms of any ceasefire, the RSF’s commitment to peace is likely worth what one would expect from a mercenary army that has committed multiple rounds of genocide. Still, United States officials repeatedly refer to the RSF in diplomatic circles as the more “cooperative party”.
鉴于此,自今年早些时候以来,华盛顿的压力行动几乎完全集中在苏丹武装部队身上,这种错误认知认为,只要施加足够压力,就能迫使军队屈服,使其放弃解放数百万在RSF统治下受困的苏丹平民的努力。然而,美国对苏丹长达二十年的全面制裁,其严厉程度和覆盖范围远超唐纳德·特朗普或乔·拜登政府所实施的任何措施,本应让特朗普团队明白,在苏丹,制裁并非可战术性使用的工具。这是一个能够长期抵御美国压力的政权。
In that light, since earlier this year, Washington’s pressure campaign has been focused on the SAF almost exclusively in the misguided belief that sufficient pressure would bring the army to its knees and cause it to abandon its effort to liberate the millions of Sudan’s civilians trapped under RSF rule. But 20 years of comprehensive US sanctions on Sudan, far more biting and wide-ranging than anything Presidents Donald Trump’s or Joe Biden’s administrations have imposed, should have taught the Trump team that sanctions in Sudan are not instruments to be used tactically. This is a regime capable of withstanding US pressure over the long run.
尽管如此,美国在6月对苏丹武装部队军事采购网络实施了新一轮制裁,随后又在7月实施了化学武器制裁,尽管缺乏任何可信的尝试来调查在实地使用化学武器的事实。后来,在8月,美国通过在联合国提出一项新的倡议来增加其惩罚性方法,以实施全国范围的武器禁运,更新达尔富尔武器禁运,该禁运可追溯到21世纪初的第一次达尔富尔种族灭绝,自战争开始以来,RSF及其地区支持者几乎每天都在藐视。
Nonetheless, a new round of US sanctions against SAF military procurement networks in June was followed by the imposition of chemical weapons sanctions in July despite the lack of any credible attempt to investigate the facts of their use on the ground. Later, in August, the US added to its punitive approach by tabling a new initiative at the UN to impose a countrywide arms embargo, updating the Darfur arms embargo dating from the first Darfur genocide in the early 2000s, which the RSF and its regional backers have flouted on a nearly daily basis since the start of the war.
华盛顿的最新举措被广泛解读为针对军队供应网络的不平衡尝试,该网络最近为苏丹武装部队带来了一些关键的战场胜利,并在冲突中创造了势头的转变。但是,由于缺乏联合国安理会半数成员的最低票数来扩大禁运,加上俄罗斯可能否决的前景,美国同意将目前的禁运技术性延长一个月,希望再进行一个月的游说能够为其倡议增加支持者。
Washington’s latest move was widely interpreted as an unbalanced attempt to target the army’s supply networks that had recently enabled a number of critical battlefield victories for the SAF and created a shift in momentum in the conflict. But lacking the minimum votes from even half the UN Security Council to expand the embargo in addition to the likely prospect of a Russian veto, the US agreed to a one-month technical extension of the current embargo in the hope that an additional month of lobbying would add supporters to its initiative.
不会的华盛顿最大压力运动的最后一部分是上周,当时它选择收紧对喀土穆的束缚,让阿卜杜勒·法塔赫·布尔汉将军出席大会的条件是华盛顿陈旧的停火协议。外交勒索行为是高风险的策略,在这种情况下,更多地反映了华盛顿自己因未能签署协议而深感尴尬和日益增长的挫败感,而不是军队的顽固态度。
It won’t. The final piece of Washington’s maximum pressure campaign came last week when it chose to tighten its noose around Khartoum by making General Abdel Fattah al-Burhan’s attendance at the General Assembly contingent upon hisg of Washington’s stale ceasefire deal.
自华盛顿在去年联合国大会召开前夕首次提出停火方案以来,该方案因双方均不愿签署而屡屡受挫。但战斗人员终究会战斗,尤其是当他们认为即将签署的协议只会让对手得以重整旗鼓、重新武装时。事实上,一份在真空中签署、无法让任何一方窥见各自未来的停火协议,更有可能固化已经将该国一分为二的事实分裂状态。
Acts of diplomatic blackmail are high-risk gambits and, in this case, reflect more Washington’s own deep embarrassment and growing frustration at failing to get a deal signed than the army’s intransigence. Since Washington first tabled its ceasefire proposal in the days leading up to last year’s UN General Assembly, it has been repeatedly stymied by both sides’ unwillingness to sign. But fighters are going to fight.
这显然是一个更有利于快速支援部队而非苏丹军队的结果。快速支援部队急于将其对该国大片地区的统治合法化,而苏丹军队则声称其作战目的是使国家重归统一。
Especially if they believe that the deal they are meant to sign only allows the other side to regroup and rearm. Indeed, a ceasefire signed in a vacuum that offers neither side a glimpse of their respective futures is more likely to entrench the de facto partition that already divides the country.
华盛顿反复声称,双方之所以持续交战,是因为他们认为自己能够取得完全的军事胜利,这种观点误判了各方的动机。他们之所以战斗,是因为他们相信必须获胜才能确保自身的生存。
That is clearly an outcome that benefits the Rapid Support Forces, which is eager to formalise its rule over large swaths of the country, more than Sudan’s army, which argues that it is fighting to make the country whole again. The often-repeated belief held by Washington that both sides are continuing to fight because they think they can achieve a total military victory misdiagnoses each side’s motivations.
美国国务院上周在联合国马拉松式会议期间仓促发布的声明,进一步助长了这种战斗动机。该声明辩称:“苏丹武装部队、快速支援部队及其各自领导人,均不代表苏丹的合法宪政治理——他们仅凭武力进行统治。各交战派别领导人的行为使其不具备治理该国的资格。”从长远来看,这或许属实,但如果试图说服任何一方在短期内放下武器,这绝非明智的外交策略。相反,该声明似乎更多是为了事后为华盛顿最新的外交手腕辩护,即阻止布尔哈在联合国大会上发表其国家致辞。
They fight because they believe they have to win to ensure their own survival. This motivation to fight was only given further fuel by the US Department of State’s hastily issued statement in the midst of the UN’s marathon meetings last week, arguing that, “Neither the Sudanese Armed Forces, the Rapid Support Forces, nor their respective leaders, represent legitimate, constitutional governance for Sudan – they rule through force of arms alone. The conduct of each leader of the warring factions renders them ineligible to govern the country.”This may be true in the long term, but it is hardly a diplomatically smart tactic to employ if trying to persuade either side to lay down their arms in the near term. Instead, the statement appears intended more as an ex post facto justification for Washington’s latest diplomatic sleight of hand in barring al-Burhan from delivering his country’s address to the UN General Assembly.
暂且不讨论这些违反国际法及外交礼仪的行为,也不考虑那些来自非洲军政府领导人的代表团(更不用说伊朗代表团)是如何获得前往纽约的签证的。华盛顿的这一决定显然不仅仅是一种试图迫使对方停火的强硬手段;它更可能意味着美国正在进一步加大压力,试图在该国推动更彻底的政权更迭。
Leave aside the breach of international law and diplomatic protocol or the policy inconsistency that saw leaders from military juntas across Africa, not to mention an Iranian delegation, receive visas to New York. Washington’s choice appears to be more than a simple strong-arm tactic to achieve a ceasefire and raises the question of whether it is ratcheting up its pressure even further to the only place left for it to go by trying to bring about more immediate regime change in the country.
结合今年美国为惩罚、孤立苏丹军方并削弱其合法性而采取的一系列措施来看,这一做法确实不容忽视。然而,美国的这种做法主要基于战术考虑而非战略规划,这反而可能使问题的解决变得更加困难。华盛顿的举动已经使其在西方、阿拉伯国家和非洲国家组成的联合阵线中陷入孤立——这些国家不仅要求立即停火,还希望实现一个更为全面、持久的和平,以帮助苏丹恢复国家和地区的稳定。
Taken alongside the manifold measures this year to punish, isolate and delegitimise Sudan’s army, the argument is hard to ignore. But here too, a US approach that has largely been driven by tactics and not strategy risks making solutions even more difficult to achieve. Already, Washington’s move has left it isolated among the broad Western, Arab and African coalitions that are pressing not merely for a quick ceasefire but for a more comprehensive and lasting peace that will return Sudan to a stable national and regional footing.
许多国家都对美国错失这一重要的外交机会表示失望;他们希望这位苏丹军事领导人能够听到来自世界各地领导人的和平呼声。其中最引人关注的是沙特阿拉伯的警告:沙特表示将重新考虑是否继续参与美国主导的“四方机制”(Quad initiative)。
Many countries have since expressed quiet disappointment that the US missed an important opportunity for diplomacy, not for al-Burhan to express his views on the war but for the military leader to hear loudly and collectively the calls for peace from dozens of assembled world leaders. Most serious was Saudi Arabia’s warning that it would review its participation in the US-led Quad initiative going forward.
自去年夏天宣布致力于实现苏丹和平以来,特朗普政府几乎没有取得任何实质性进展。相反,美国政府似乎仍在重复过去美国和平谈判中犯过的错误——他们仍然认为仅凭外交压力就能改变战局并推动和平进程。
The Trump administration has little progress to show since it announced last summer its ambition to bring peace to Sudan. Instead, the administration appears to be making many of the same mistakes past US peacemaking efforts have made by believing that diplomatic pressure alone will shape battlefield outcomes and aid the cause of peace.
上周,华盛顿将这种做法发挥到了极致。但旨在孤立苏丹军队的做法又回到了华盛顿。如今,扭转路线并与战争交战方接触不仅是美国挽回面子和维持其目标领导的外交联盟的必要条件,而且是拯救苏丹生命的唯一手段。
Last week, Washington took this approach to an extreme. But the isolation intended for Sudan’s army has ricocheted back onto Washington. Reversing course and engaging the war’s belligerents are today not merely necessary for the US to save face and maintain a diplomatic coalition it aims to lead, but they are the only thing that will save lives in Sudan.