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United States-China Normalization: an Evaluation of Foreign Policy

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United States-China Normalization: an Evaluation of Foreign Policy OccAsioNAl PApERs/ REpRiNTS SERiEs iN CoNTEMpORARY 0 '' AsiAN STudiEs ' NUMBER 4 - 1986 (75) UNITED STATES-CHINA , 6 NORMALIZATION: AN EVALUATION OF I FOREIGN POLICY DECISION MAKING • Jaw-ling Joanne Chang ScltoolofLAw UNivERsiTy of 0 .~ MARylANd. cC ' 0 Occasional Papers/Reprint Series in Contemporary Asian Studies General Editor: Hungdah Chiu Acting Executive Editor: Shaiw-chei Chuang Managing Editor: Chih-Yu Wu Editorial Advisory Board Professor Robert A. Scalapino, University of California at Berkeley Professor Martin Wilbur, Columbia University Professor Gaston J. Sigur, George Washington University Professor Shao-chuan Leng, University of Virginia Professor James Hsiung, New York University Dr. Lih-wu Han, Political Science Association of the Republic of China Professor J. S. Prybyla, The Pennsylvania State University Professor Toshio Sawada, Sophia University, Japan Professor Gottfried-Karl Kindermann, Center for International Politics, University of Munich, Federal Republic of Germany Professor Choon-ho Park, International Legal Studies Korea University, Republic of Korea Published with the cooperation of the Maryland International Law Society All contributions (in English only) and communications should be sent to Professor Hungdah Chiu, University of Maryland School of Law, 500 West Baltimore Street, Baltimore, Maryland 21201 USA. All publications in this series reflect only the views of the authors. While the editor accepts responsibility for the selection of materials to be published, the individual author is responsible for statements of facts and expressions of opinion con­ tained therein. Subscription is US $15.00 for 6 issues (regardless of the price of individual issues) in the United States and Canada and $20.00 for overseas. Check should be addressed to OPRSCAS and sent to Professor Hungdah Chiu. Price for single copy of this issue: US $8.00 (paper back) $12.00 (hard cover) © 1986 copublished by Monograph Series in World Affairs, University of Denver and Occasional Papers/Reprint Series in Contemporary Asian Studies, Inc. ISSN 0730-0107 ISBN 0-942182-77-4 (paper back) ISBN 0-942182-78-2 (hard cover) U.S. Library of Congress Card Catalog No. 86-25061 UNITED STATES-CHINA NORMALIZATION AN EVALUATION OF FOREIGN POLICY DECISION MAKING Jaw-ling Joanne Chang ABOUT THE AUTHOR JAW-LING JOANNE CHANG is a scholar of international politics and U.S.-China relations. She is currently writing a book on Beijing's negotiating style. After studying international relations and political science at the National Taiwan University, Dr. Chang earned her M.A. at the University of Delaware and Ph.D. at the University of Maryland. She recently served as associate professor of Political Science at the National Taiwan University and research associate in the Institute of American Culture, Academia Sinica. She is presently a visiting scholar in the East Asian Legal Program of the University of Maryland School of Law. ACKNOWLEDGMENTS Completion of this book would not have been possible without the active interest and the time and effort so willingly given by so many persons, only a few of whom I can acknowledge here. I am grateful to Dr. Oran R. Young for helping my intellectual development and evoking my initial interest in decision-making mod­ els, and to Professor Hungdah Chiu for his generous support and encouragement. I would like to express my deepest appreciation to the U.S. and R.O.C. former and current officials listed on pages ix-x who were par­ ticularly generous with their time for granting personal interviews. Professors Tung-hsun Sun, Parris Chang, Chun-tu Hsueh, Har­ old Hinton, Harry Harding, and Jonathan Pollack have my indebted­ ness for enriching my understanding of U.S.-China relations. I am also grateful to Dr. Stanley Heginbotham for broadening my under­ standing of the bureaucratic politics factor and its impact on normali­ zation decision-making processes. I owe, too, a special expression of thanks to Ambassador Harvey Feldman, former U.S. Alternate Representative to the United Nations and former Director of Republic of China Affairs, for reviewing the entire manuscript and suggesting detailed comments and further ideas. I am particularly grateful to Professor William W. Boyer for im­ parting to me many of my research and writing skills. I would like to express my sincere gratitude to Professor Karen Peste and Millie Van Wyke for making their valuable suggestions and editing the entire manuscript, and to Shaiw-chei Chuang for compiling the index. Finally, I thank my husband whose forbearance and encourage­ ment were essential to me. Despite all the help I have received from many sources, I alone am responsible for the contents and shortcomings of this book. To my parents Yu-hwa and Yu-feng Chyou To my family Eugene and Jennifer Chang WADE-GILES AND PINYIN SPELLINGS In 1978, the State Council of the People's Republic of China announced that it had decided to use the Chinese phonetic alphabet, called pinyin, to standardize the romanization of the names of people and places in China. The change went into effect on January 1, 1979. The new system poses problems and confusions for the reader unfamiliar with Chinese pronunciation. The older spelling (Wade­ Giles) is used in this dissertation because this study deals with the analysis of the pre-1979 period.* The names under the old spelling and the new system are listed as follows: Old New Mao Tse-tung Mao Zedong Chou En-lai Zhou Enlai Teng Hsiao-p'ing Deng Xiaoping Hua Kuo-feng Hua Guofeng Huang Hua Huang Hua Chai Tse-min Chai Zemin Huang Chen Huang Zhen Ch'iao Kuan-hua Qiao Guanhua Chang Wen-chin Zhang Wenjin Chiang Ch'ing Jiang Qing Wang Yu-p'ing Wang Y ouping Lei Yang Lei Yang Yao Wen-yiian Yao Wenyuan Wang Hung-wen Wang Hongwen Chang Ch'un-ch'iao Zhang Chunqiao * The capital city of China was spelled "Peiping" by the Chinese Nationalists, "Peking" by the Communists after they took power in 1949 and "Beijing" since 1979. To avoid confusion, this last spelling is used throughout this work. INTERVIEWS Anderson, Donald. U.S. Consul General to Hong Kong and former Director of Chinese Affairs, State Department, 1983-1985, February 20, 1986. Arlington, Virginia. Barnett, A. Doak. Professor of Johns Hopkins University, SAIS. February 5, 1986. Brzezinski, Zbigniew. Former National Security Adviser, 1977-1981. February 21, 1986. Washington, D.C. Chien, Frederick F. Former Deputy Foreign Minister of the Republic of China. June 12, 1979. Taipei. Dean, David. Director of American Institute in Taiwan. June 21, 1985 and January 28, 1986. Arlington, Virginia. Feldman, Harvey J. Former U.S. Alternate Representative to the United Nations, 1984-1986; former Director of Republic of China Affairs, State Department, 1977-1979. September 6, 1985 and February 25, 1986. New York City. Green, Marshall. Former Assistant Secretary of State, Bureau of East Asian and Pacific Affairs, 1969-1972. July 16, 1985. Washington, D.C. Gregg, Donald. Special Assistant to Vice President George Bush; former staff member of the National Security Council, 1981-1982. August 20, 1985. Washington, D.C. Holbrooke, Richard. Former Assistant Secretary of State, Bureau of East Asian and Pacific Affairs, 1977-1980. June 4, 1982. Washington, D. C. Holdridge, John. Former U.S. Ambassador to Indonesia; former Assistant Secretary of State, Bureau of East Asian and Pacific Affairs, 1981-1982. February 4, 1986. Bethesda, Maryland. Johnson, U. Alexis. Former Under-Secretary for Political Affairs, State Department, 1969-1972. July 1, 1985. Washington, D.C. Judd, Walter H. Former U.S. Senator. January 18, 1982. Washington, D.C. Keyser, Donald W. Deputy Director of Chinese Affairs, State Department. July 26, 1985. Washington, D.C. Lilley, James R. Former Deputy Assistant Secretary of State, Bureau of East Asian and Pacific Affairs, August 30, 1985. Washington, D.C. Oksenberg, Michel. Former staff member of the National Security Council, 1977-1980. September 4, 1981. New York City; and July 29, 1985. Ann Arbor, Michigan. Pratt, Mark. Former Taiwan Coordination Adviser, State Department, 1983-1986. February 27, 1986. Washington, D.C. Romberg, Alan. Former State Department spokesman, 1981-1982. February 25, 1986. New York City. Rope, William. Former Director of Chinese Affairs, State Department, 1981-1982. September 4, 1985 and February 5, 1986. Washington, D.C. Shen, James. Former Ambassador of the Republic of China to the United States, 1971-1978. June 15, 1979. Taipei. Solomon, Richard. Former staff member of the National Security Council, 1971-1976. September 13, 1985. Santa Monica, California. Stoessel, Walter, Jr. Former Under-Secretary for Political Affairs, State Department, 1981-1982; Former U.S. Ambassador to Poland and Soviet Union. June 21, 1985. Washington, D.C. Sullivan, Roger. Former Deputy Assistant Secretary of State, Bureau of East Asian and Pacific Affairs, 1978-1980. July 18, 1982 and August 9, 1985. Washington, D.C. Tsai, Wei-ping. Former Director of the Institute of International Relations. June 1979. Taipei. Woodcock, Leonard. Former U.S. Ambassador to the PRC, 1979- 1981; Former U.S. Representative of the Liaison Office in Beijing, 1977-1979. July 29, 1985. Ann Arbor, Michigan. TABLE OF CONTENTS ABOUT THE AUTHOR.................................... v ACKNOWLEDGMENTS................................... vi WADE-GILES AND PINYIN SPELLINGS. viii INTERVIEWS. ix LIST OF TABLES . xiii PREFACE.................................................. 3 INTRODUCTION. 4 PART 1 HISTORICAL BACKGROUND 1. U.S.-PRC RELATIONS: 1949-1968..................... 13 U.S.-Chinese Communist Party Relations prior to 1949... 13 U.S. Policy toward the Recognition of the PRC in 1949 and 1950 . 14 The Korean War and U.S. China Policy . 20 The McCarthy Era and the Recognition Issue . 21 The Ambassadorial Talks in Geneva, 1955-1957.......... 23 U.S. Policy toward the PRC during the Kennedy and Johnson Years . 25 2. U.S.-PRC RELATIONS: 1969-1978..................... 29 The Opening of China . 29 President Nixon's Visit to China in 1972 and the Shanghai Communique .
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