依照《中华民国临时约法》,民国北京政府实行责任内阁制,大总统仅具有象征性地位。但徐世昌因夙为北洋派元老,具备较高的政治威望,作为直皖双方都可接受的总统人选,得到日本政府认可,故得以担任总统并参与主导政府决策。日本内阁首相原敬作为在众议院中拥有多数议席的政友会总裁,以众议院为基础,依托贵族院中占有多数的亲政友会派,通过陆军大臣田中义一与军部进行合作。这一时期中日两国政府决策过程具有共同点,即北京政府大总统徐世昌与国务总理钱能训需要取得以皖系领袖段祺瑞为首的北洋军阀实力派的支持和赞同,才能进行决策,日本政府首相原敬也需要取得元老山县有朋的理解和认可,才能更顺利地进行决策;在两国政府决策过程中不能忽视外部因素的影响,北京政府的决策受制于日本和以英美为核心的列强以及国内舆论压力,原敬内阁在与英美协调并考虑与中国南北政府关系的基础上做出决策。两国政府决策过程也存在不同点,徐世昌与钱能训领导力弱小,如果不能征得段祺瑞等北洋军阀实力派的同意,即使做出决策,也很难得到有效实施,而且决策如遭致国会反对,国务总理受到国会弹劾则惟有辞职一途;而原敬依靠自身强大的领导能力和与元老山县有朋的协商一致,通过内阁会议就可以顺利做出决策。 In accordance with the Provisional Constitution of the Republic of China, the government of the People’s Republic of China has implemented a cabinet of responsibility. The President has only a symbolic status. However, Xu Shichang, as a veteran of the Peiyang School, enjoys a high political prestige. As an acceptable candidate for president of both Anhui and Anhui Provinces, he is recognized by the Japanese government and is therefore able to serve as president and take the lead in making decisions. Japanese Prime Minister Yasuyuki As the president who has the majority of seats in the Chamber of Deputies, he uses the House of Representatives as the foundation and relies on the pro-Electoralist faction, which is the majority of the Aristocracy, to cooperate with the military through Takeshi Tenchi, the army minister. During this period, the policymaking process between China and Japan has in common: President Xu Shichang of Beijing Government and Qian Nengxun, the premier of the State, need to obtain the support and approval of the Beiyang warlords’ strength group led by Wan Dang, the leader of the Anhui Department, In addition, the Japanese government Prime Minister Harada Masayoshi also needs to obtain the understanding and approval of Yuanlaoshan County friends, in order to make a more smooth decision-making. In the decision-making process of the two governments can not ignore the impact of external factors, the Beijing government’s decision-making subject to Japan and Anglo-American as the core As well as the pressure of public opinion in the country. The original cabinet made decisions based on its coordination with the Anglo-American and consideration of the relations with the government of North and South China. Xu Shichang and Qian Nengxun have weak leadership. If they can not obtain the consent of Duan Qirui and other northern warlords, they can hardly be effectively implemented even if they make decisions. To the opposition in Congress, the Prime Minister by the Congress impeachment only to resign; and Harajuku rely on their own strong leadership and met with the friends of Laoluoshan County, through the cabinet meeting can make a smooth decision.