从破冰船强制领航到许可证制度——俄罗斯北方海航道法律新变化分析

FROM MANDATORY ICEBREAKER GUIDING TO A PERMIT REGIME:CHANGES TO THE NORTHERN SEA ROUTE IN NEW RUSSIAN LAW

围绕北方海航道定义和破冰船强制领航两个重要的争议问题,详细对比了俄罗斯相关旧法律条文和2013年颁布的新法律条文,综合分析后认为:(1)在法律层面上,俄罗斯对于北方海航道属于国家历史性交通干线的立场没有改变,范围则做了明晰化的界定,新的北方海航道水域范围与俄罗斯北冰洋内水、领海及毗连区和200海里专属经济区水域范围相一致。这意味着消除了有关北方海航道北部边界是否延伸到公海的争议;(2)在规则层面上,从破冰船强制领航制度改变为许可证制度,尤其是给出了具体的、可操作和可预期的独立航行许可和不许可条件,使得外国船只在北方海航道水域的独立航行成为可能。由此得出结论:俄罗斯北方海航道政策出现了较大变化,有进一步向国际开放的政策倾向。

This article focuses on two issues：the definition of the Northern Sea Route（NSR） and the rules of icebreaker guiding.Comparing the Russian legal provisions enacted in 2013 with the relevant previous laws,the conclusions of our comprehensive analysis are as follows.（1） Based on the legal analysis,Russia＇s view of the NSR as a historical national transportation route of Russia has not changed.However,the new law redefines the scope of NSR,which comprise and are consistent with internal waters,territorial sea,the adjacent zone and the exclusive economic zone of the Russian Federation.In fact,the law removes ambiguity about how the boundary of NSR extends to the high sea.（2） Based on analysis of the rules,NSR develops into a permit regime from the mandatory icebreaker guiding regime,in particular providing the concrete,practical and predictable clause of permissible or impermissible conditions of independent navigation.According to the new rules,it is possible for foreign ships to undertake independent navigation in the NSR.The Russian NSR policy therefore appears to have changed significantly,and has further potential for opening the NSR to the international community.