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美国与缅甸悄然外交解冻,背后有何玄机?What’s behind the quiet US diplomatic thaw with Myanmar?

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刚刚走完东南亚邻国铺设的红毯,缅甸前军方首领敏昂莱似乎在外交上又添新彩:与美国重启接触。

Fresh from walking down red carpets laid out by his Southeast Asian neighbours, Myanmar’s ex-military chief Min Aung Hlaing appears to have a new diplomatic feather in his cap: re-engagement with the United States.

2021年2月1日敏昂莱发动政变、随后对亲民主抗议者实施血腥镇压仅10天后,华盛顿便对其实施制裁。后续几轮制裁瞄准与军方有关联的公司和亲信。

Washington slapped sanctions on Min Aung Hlaing just 10 days after his February 1, 2021 coup and the ensuing bloody crackdown on pro-democracy protesters. Waves of subsequent sanctions targeted military-linked companies and cronies.

然而自上个月以来,双方已举行两轮会谈。细节尚未公开,但专家认为缅甸的稀土资源极有可能在议题之中。

Yet since last month, two rounds of talks with US officials have taken place. While details have yet to be made public, experts say Myanmar’s rare earths are likely on the table.

唐纳德·特朗普政府领导下的国务院似乎准备调整路线——这是美国外交政策更广泛重组的一部分,批评者称这将务实置于原则之上。

The State Department under Donald Trump’s administration appears set for a course change – part of a wider retooling of US foreign policy that critics say prioritises pragmatism over principle.

路透社证实,近几周白宫官员与缅甸代表至少举行了两次会晤。上个月在首都内比都举行的首轮会谈,促成美国商人亚当·卡斯蒂略获释,并涉及保护美国公民免受缅甸境内网络诈骗中心侵害。

Reuters confirmed at least two meetings between White House officials and Myanmar representatives in recent weeks. The first round, held last month in the capital Naypyidaw, secured the release of US businessman Adam Castillo and touched on protecting American citizens from the scourge of cyber scam centres operating in Myanmar.

缅甸官方媒体随后报道,卡斯蒂略获释是两国“友好关系”的象征。

Castillo’s release was a symbol of “friendly relations” between the two countries, Myanmar state media later reported.

据报由国务院情报与研究局助理国务卿迈克尔·万斯率队、于10月初在东京举行的后续会谈实质内容仍未获证实。

The substance of follow-up talks in Tokyo in early October – reportedly led by Assistant Secretary of State for Intelligence and Research Michael Vance – remains unconfirmed.

澳大利亚智库洛伊研究所东南亚项目主任亨特·马斯顿将会谈描述为“探索性”,称美国部分意图可能是支持缅甸“和平回归民主”。

Describing the talks as “exploratory”, Hunter Marston, Southeast Asia Programme director at the Australian think tank Lowy Institute, said the US might in part be supporting Myanmar’s “peaceful return to democracy”.

迈克尔·万斯(Michael Vance)是美国国务院负责情报与研究的助理部长,他在6月于华盛顿举行的参议院外交关系委员会听证会上发表了讲话。图片来源:路透社(Reuters)Michael Vance, Assistant Secretary of State for Intelligence and Research, speaks at a Senate Foreign Relations Committee confirmation hearing in Washington in June. Photo: Reuters

但他补充道:“目前更主要的目标似乎围绕探索性会谈,重点在于获取稀土资源以及合作根除网络诈骗活动。”

But “the more dominant objective at the moment appears to revolve around exploratory talks with [an] emphasis on access to rare earths and cooperation to eradicate cyber scam operations”, Marston added.

缅甸是世界上最大的稀土矿生产国之一,也是中国进口这些关键矿产的主要来源,这些矿产对于从电动汽车、风力涡轮机到国防技术和机器人技术等一切事物都至关重要。

Myanmar is among the world’s largest producers of rare earth ores and is China’s main import source for these critical minerals, which are essential for everything from electric vehicles and wind turbines to defence technology and robotics.

随着人工智能推动能源和硬件需求激增,白宫决心在任何可能的地方确保长期获取稀土储备。华盛顿已在全球签署供应协议,以减少对主导全球生产的中国的依赖。但确保获取缅甸已知矿藏的渠道是一项艰巨的挑战。

As artificial intelligence fuels rising energy and hardware demands, the White House is determined to secure long-term access to rare earth stockpiles wherever possible. Washington has signed supply deals globally to curb its reliance on China, which dominates global production. But securing access to Myanmar’s known deposits is a daunting challenge.

缅甸许多矿产丰富的地区埋藏在靠近中国和泰国边境的山区,超出了中央政府的控制范围。北部克钦邦富含对先进军事技术至关重要的镝和铽,由克钦独立军(KIA)管理,这是一个正在与军政府作战的民族武装团体。

Buried in the mountainous borderlands near China and Thailand, many of Myanmar’s mineral-rich areas are beyond central government control. Northern Kachin state – rich in dysprosium and terbium critical to advanced military technologies – is administered by the Kachin Independence Army (KIA), an ethnic armed group fighting the junta.

缅甸克钦邦(Kachin State)的一座稀土矿。该地区靠近中国边境,拥有数百个稀土矿开采点。图片来源:美联社(AP)A rare earth mine in Kachin state, Myanmar. The region is close to the Chinese border and home to hundreds of rare earth mining sites. Photo: AP

马尔斯顿说:“除非克钦独立军坐到谈判桌前,否则美国似乎极不可能达成它心中可能设想的那种协议。”“除非在战争中开辟新战线以夺回克钦邦领土,否则军方似乎无法为美国带来那种胜利。”

“Unless the KIA is at the table, it seems exceedingly unlikely that the US will be able to get the types of deals it may have in mind,” Marston said. “Short of a new front in the war to retake territory in Kachin, the military seems unable to deliver those types of wins for the United States.”

自4月以来,敏昂莱换下军装穿上便服出任总统,外交生活也变得轻松得多。此前举行了被广泛谴责为骗局的选举——仅在政府控制地区举行——旨在提供一层文人合法性的外衣。

Diplomatic life has also become a lot easier for Min Aung Hlaing since April, when he swapped his military fatigues for civilian clothes to assume the presidency. That followed elections widely denounced as a sham – held only in government-controlled areas – designed to offer a veneer of civilian legitimacy.

最近几个月,包括泰国、越南、马来西亚、老挝和柬埔寨在内的邻国都以总统身份接待了敏昂莱。中国、俄罗斯和印度也欢迎了他。

In recent months, neighbours including Thailand, Vietnam, Malaysia, Laos and Cambodia have all hosted Min Aung Hlaing in his capacity as president. China, Russia and India have also welcomed him.

泰国一直是东南亚国家联盟(ASEAN)推动缅甸重新加入该联盟的核心力量。本月早些时候,缅甸领导人登盛访问了马来西亚,受到了马来西亚总理安瓦尔·易卜拉欣的热情接待,这为缅甸重返东盟高层峰会注入了新的动力;自缅甸发生军事政变以来,缅甸一直被禁止参加这些峰会。

Thailand has been a driving force within the Association of Southeast Asian Nations to reintegrate Myanmar. A visit to Malaysia earlier this month, where Min Aung Hlaing was warmly received by Prime Minister Anwar Ibrahim, added fresh momentum towards bringing Myanmar back into top-level Asean summits, from which it has been barred since the coup.

此前,登盛因监禁政治对手(包括民主运动领袖昂山素季)以及将国家推向毁灭性的内战而受到国际社会的谴责;这场内战迫使无数年轻人被迫逃离国内或拿起武器反抗政府。

Min Aung Hlaing was previously shunned internationally for jailing political rivals – including democracy champion Aung San Suu Kyi – and plunging the country into a devastating civil war that forced countless young people to flee abroad or take up arms.

在拜登政府执政期间,华盛顿与美国和欧盟合作,对缅甸军政府实施了新的制裁措施。然而,在特朗普执政期间,有迹象表明美国政府可能正在考虑逐步放宽对这些制裁。

Under the Biden administration, Washington worked with the UK and EU to impose fresh sanctions on the junta. Under Trump, however, there have been signs that a gradual rollback could be under consideration.

一些观察人士认为,缅甸军政府在华盛顿的地位之所以有所改善,是因为他们于今年4月聘请了经验丰富的共和党战略顾问罗杰·斯通(Roger Stone)。据称,斯通每月从总部位于华盛顿的游说机构DCI Group获得5万美元的咨询费;该机构去年7月与缅甸政府签订了价值300万美元的合同。

Some Myanmar watchers attribute the junta’s shifting fortunes in Washington to the hiring of veteran Republican strategist Roger Stone in April. Stone is said to draw US$50,000 monthly as a consultant for the Washington-based lobbying firm DCI Group, which signed a US$3 million contract with Myanmar in July last year.

罗杰·斯通(Roger Stone)曾是美国总统唐纳德·特朗普(Donald Trump)的顾问及亲信,他在2021年于华盛顿接受了记者的采访。图片来源:TNSRoger Stone, a former adviser and confidant to US President Donald Trump, addresses reporters in Washington in 2021. Photo: TNS

不过,马尔斯顿(Marston)警告人们不要过分夸大这位游说者的影响力:“我认为罗杰·斯通和DCI Group对美国政府态度的微妙变化影响甚微。”

But Marston warns against overstating the lobbyist’s role. “My guess would be Roger Stone and DCI Group have had relatively little influence over the modest change in approach,” he said.

此外,缅甸政府的态度也出现了变化——长期以来,缅甸政府一直以无视外界意见而臭名昭著。周一,缅甸政府官员罕见地公开了一张81岁的昂山素季接受英国国王查尔斯寄来的包裹的照片;登盛还接受了西方媒体的采访,为《时代》(Time)杂志撰写了个人特写。

There are other signs of a change in tone from Naypyidaw – long notorious for ignoring outside opinion. On Monday, Myanmar government officials posted a rare photograph of 81-year-old Suu Kyi receiving a package sent by Britain’s King Charles. Min Aung Hlaing also gave a rare interview to Western media for a profile feature in Time magazine.

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