美国在南海“航行自由行动”的变化情势与相关国际法问题

An Analysis on the Changes of the U.S. FONOPs in the South China Sea and the Related International Legal Issues

美国一直将海洋自由视作其国家核心利益,并自2011年起在南海针对中国开展“航行自由行动”。2016年“南海仲裁案”非法裁决出台后,美国在南海展开的“航行自由行动”呈现出一些新特点和新问题。美国不但逐渐加大了其军舰在南海进行“航行自由行动”的频次,还尽量全面而严密地以“南海仲裁案”非法裁决为所谓的“法理依据”,调整国际法概念和用语,细化其法律包装和法理用意。美国以“挑战”沿海国“过度海洋主张”的名义,有计划地频繁进入中国南沙群岛美济礁、渚碧礁、仁爱礁等岛礁附近海域开展“航行自由行动”,企图否定中国在南沙群岛的领土主权和海洋权益;进入中国中沙群岛(主要是黄岩岛)和西沙群岛的附近海域航行,试图将该非法裁决扩大适用到西沙群岛和中沙群岛,扩大该裁决的不利影响,并意欲将南海“公海化”。美国在南海的“航行自由行动”还呈现出步步为营、各部门间统一口径和一致联合的特点。

The U.S. takes the freedom of the seas as a vital national interest and conducts FONOPs against China in the South China Sea since 2011. Taking the illegal award of the South China Sea Arbitration in 2016, the U.S. FONOPs in the South China Sea indicate some new characteristics and international law issues. It gradually increases the frequency of FONOPs in the South China Sea, and repeatedly entered within 12 nautical miles of some Chinese islands and reefs. It endeavors to take the illegal award as the so-called jurisprudence basis, adjusts its concept and language of international law on the terms of innocent passage, straight baseline, title to islands, and refines its legal packaging and legal intention thereof. In the name of challenging excessive maritime claims of coastal states, the U.S. conducts frequent and planned FONOPs in adjacent waters of Meiji Jiao, Zhubi Jiao, Ren’ai Jiao, Huayang Jiao, Yongshu Jiao, Nanxun Jiao, Chigua Jiao of Nansha Qundao(Spratly Islands), in an attempt to deny China’s territorial sovereignty and maritime rights and interests in Nansha Qundao. The U.S. also conduct FONOPs in adjacent waters of Zhongsha Qundao(Macclesfield Islands, mainly Huangyan Dao) and Xisha Qundao(Paracel Islands), including within 12 nautical miles of the relevant islands and reefs, or just vaguely declaring the waters near them, in an attempt to extend the illegal award to Xisha Qundao and Zhongsha Qundao and to enlarge its unfavor effect to China and intend to deny China’s rights and claims of the integral oceanic archipelago in the South China Sea and to turn the South China Sea into “high seas”. The U. S. FONOPs in the South China Sea are also characterized by a step by step approach, unified rhetoric and concerted efforts among its various authorities and departments.