国际法下对抗IUU渔捕行为之最新发展:FAO船籍国效能自愿性指导方针

The Latest Development of Measures to Combat IUU Fishing under International Law:FAO Voluntary Guidelines for Flag State Performance

非法、不报告和不受规范渔捕行为是公海渔业管理面临的最严峻的挑战之一。然而,公海渔业管制最首要的责任还在于船旗国。因此,联合国粮食与农业组织制定了《船籍国效能自愿性指导方针》。《方针》提出了鼓励和帮助船旗国遵守有关渔船升旗和管制的国际责任和义务的建议方法。同时,为鼓励船旗国遵守国际责任和义务并禁止船旗国违反责任和义务制定了可行的行为模式。《方针》在与发展中国家合作及其提升自身发展能力上提供了可行的方法,并规定联合国粮食与农业组织应该支持发展中国家提升自身的发展能力。然而,《方针》本质上仍是一种"软法",意味着《方针》的实施完全依靠各国的政治意愿,因此其有效性也受到质疑。尽管港口国措施正由"软法"模式逐步发展为"硬法"的《联合国粮食与农业组织港口国措施协定》,但未来各国就船旗国行为制定法律规则能否达成共识尚不明确。"船旗国行为"这一概念如何发展,其他议题,如市场国家未来在反对非法、不报告和及不受规范渔捕行为是否加大影响力,都值得进一步关注。

Illegal,unreported,and unregulated(IUU) fishing is one of the most serious challenges faced by fisheries management on the high seas.However,primary responsibilities to regulate high seas fisheries still reside with flag States.United Nations Food and Agriculture Organization(FAO) thus adopted the Voluntary Guidelines for Flag State Performance(the Guidelines).The Guidelines contain recommended approaches to encourage and help flag states comply with their international duties and obligations regarding the flagging and control of fishing vessels.They also presented possible actions to encourage compliance and deter non-compliance by flag states.Last but not the least,the guidelines provided possible ways to cooperate with and assist developing States in capacity development,and defined the role that FAO can play in supporting these processes.However,the Guidelines are still 'soft-law' in nature,meaning the implementation of the Guidelines heavily depends on the political will of States,and the effectiveness of the Guidelines is thus questionable.Despite the fact that the development of port States measures successfully evolved from the ' soft- law' Model Scheme to the 'hard-law' FAO Port State Measures Agreement,the consensus among States to have a legally-binding instrument on flag State performance later in the future is not clear yet.How will the concept of 'flag State performance' evolve,and will other subjects such as market States increase their importance against IUU fishing in the future are thus worthy of sustained attention.