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Law enforcement personnels examine passing ships with telescopes on the patrol vessel Haixun-21 on the South China Sea, on 21 April 2015. AFP/Guo Qiuda
Report / Asia 5 minutes

南海翻波 (三):稍纵即逝的降温契机

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南中国海是东亚地缘政治的风暴中心。这片海域既拥有重要的油气和渔业资源,又是利害攸关的贸易走廊,文莱、中国、马来西亚、菲律宾和越南这五国加上台湾,都对南海提出了相互冲突的领土和海事申索。近年来,冲突对峙在这里时有发生,周而复始。当前,南海冲突愈演愈烈,而紧张期之间的间歇则越来越短。由于东亚地区的影响力和实力与日俱增,如何处理申索矛盾将为未来数年区域内各国关系定下基调。东亚是全球最成功的经济合作典范之一,但对紧张局势的把控稍有不慎,就有可能严重损害这一巨大成就。尽管中国对所控制的一些岛礁的扩建备受争议,但目前南海争端的总体热度相对较低,为打破冲突的循环复发提供了契机,然而,这一机会可能只是昙花一现,东亚地区各国,在国际社会的支持下,需要在机会消失之前及时加以把握。

南海之争由来已久,即使没有上百年,也绝对能够追溯到几十年前。最近一轮冲突对峙始于2014年5月,中国当时向一片中越都申索的海域派出了一座石油勘探钻井。这一举动招来越南的强烈抗议以及广泛的外交谴责,两个月后中国撤走了钻井平台。出乎意料的强烈反应和随之而来的外交余波,促使北京政策圈对此进行了深刻反思,并转而收藏了一些锋芒。然而,尽管更换了战术,中国政府仍致力于加强对其“九段线”(中国地图上将南海大部分区域都划定在内但定义模糊的虚线)圈内的岛屿和海域的申索。中国正在其所控制的许多岛礁上进行大规模填海建设,这正是其意图的体现。

虽然目前的情形并未给局势的长久安定带来多大希望,但中国希望避免其地区外交关系的再一次急剧恶化,并尤其向东盟(东南亚国家联盟)表示出了更为合作的态度,这为地区相关国家提供了契机。东盟十国正在努力推动正式的南海行为准则的生成,以预防偶发冲突,缓和冲突影响,并避免意外争端升级成为冲突对峙。

北京的战术调整可能再次体现了其惯用做法,即在通过强硬行为扩大控制权后,转而修复外交关系并巩固刚获取的利益,并不断交替使用这两种手法。近几年,冲突间歇期越来越短,紧张局势加剧的情况越来越频繁,因此整体循环周期越来越短,这部分归结于中国推进申索的欲望和能力都与日俱增。

北京双管齐下的政策目标是既要维持周边稳定,又要维护自己所主张的海洋权利,两者本质上在南海的大环境下是互不协调的。这意味着中国在认为局势可控的情况下会继续寻求机会,推进其主权申索。虽然钻井平台的余波促使中国对形势重新加以衡量,尤其是这一举动导致南海的其他主要申索国加强了与美国的关系,但中国的外交政策分析家们的主流意见仍旧认为,中国只是需要更为耐心和巧妙地推进自己的申索,而非重新考虑申索范围。

习近平主席的外交风格是亲和语言和强硬行动的结合,这令中国内外的观察家们认为他比前任更民族主义,在维护海洋申索上更为坚定,也更愿意承担风险。由于在中国走强硬路线的政治风险远小于温和路线,因此外交政策的制定和实施偏向强势。

因此,地区一些主要国家对中国“和平发展”承诺的信心一落千丈。菲律宾政府感觉“遭中国欺负”,因此加强了与协约盟国美国的关系。2012年年中菲律宾企图逮捕一群中国渔民,结果却让中国借机控制了之前双方都提出主权申索但均未取得控制权的黄岩岛,这导致菲律宾政治圈中支持与北京进行双边接触的人士失去影响力。2013年1月,菲律宾政府针对中菲海洋争端提起国际仲裁。中国政府大为震怒,拒绝参与,双边关系随后跌至冰点。

虽然钻井平台事件后,中国做出了修复中越关系的举动,让越方部分重树对双边外交的希望,但该事件让越南政府感到其强大邻国不可预测,其意图不可确定。而这一印象并不会因为中国短期内的外交示好而动摇。为了应对不确定性,越南向美国靠拢,敦促东盟在处理南海问题上发挥更为积极主动的作用,并将把中越南海之争诉诸法庭作为预案而进行准备。

作为东盟最大的成员国和实际的领导者,印度尼西亚警惕地审视着中国的战略意图。虽然印尼否认自身是南海申索国,但却对九段线提出了抗议,因为九段线将中国的申索扩展至印尼的纳土纳群岛附近。据报道,自2009年以来,印尼政府试图对被指非法捕鱼的中国渔船进行执法时,多次遭遇中国的激烈反映。2012年东盟因南海问题而内部分裂,由于印尼对建立东盟准则和凝聚力投入最多,因此对此事件极为焦虑,而雅加达的外交政策精英们也开始怀疑中国试图削弱东盟。

南海局势长期在紧张升级与相对平静间周而复始,近期中国政府对于其战术的修订提供了一个打破这一无望循环的契机。建设21世纪海上丝绸之路是习近平的外交重头戏之一,北京为此积极寻求地区合作,同时中国还口头对东盟在维护南海和平稳定上的主导作用表示支持(虽然其主要动因是抵挡美国在地区内影响力的扩大,并牵制菲律宾),因此可能为多边外交提供更大空间。印尼仍然有决心引领南海行为准则的制定,其目的是保证各申索国遵守基于共识的行为规范。越南和菲律宾也仍然对这一由东盟主导的议程保持希望。作为2015年东盟主席国,马来西亚是南海申索国但与中国保持着睦邻友好关系,而且在成员国中外交能力相对较强,因此可望发挥领导作用。该地区因此面临着在多事之海上争取持久平静期的可靠机会。

北京/马尼拉/河内/雅加达/新加坡/布鲁塞尔,2015年5月7日

Executive Summary

The South China Sea is the cockpit of geopolitics in East Asia. Five countries – Brunei, China, Malaysia, the Philippines and Vietnam – plus Taiwan have substantial and competing territorial and maritime claims in a body of water that is both an important source of hydrocarbons and fisheries and a vital trade corridor. The recent history has been scarred by cycles of confrontation. Today, the clashes are becoming more heated, and the lulls between periods of tension are growing shorter. As the region continues to grow in influence and power, the handling of the competing claims will set the tone for relations within East Asia for years. The cost of even a momentary failure to manage tensions could pose a significant threat to one of the world’s great collaborative economic success stories. Despite China’s controversial development of some of the reefs it controls, the current relatively low temperature of the disagreement offers a chance to break the cycle, but it is likely to be short-lived. The countries of the region, supported by the wider international community, need to embrace the opportunity while it lasts.

The competition in the South China Sea goes back decades if not centuries, but the dynamics of the latest round of confrontation were set in motion by China’s decision in May 2014 to deploy an oil exploration rig in waters claimed by both it and Viet­nam. The deployment provoked deadly riots in Vietnam and widespread diplomatic condemnation: the rig was withdrawn two months later. The unexpected intensity of the response and the diplomatic fallout that followed prompted some deep reflection in policy circles in Beijing and the adoption of a less provocative stance. Despite retooling its tactics, however, Beijing remains committed to consolidating its claims over the islands and waters within what is known as the “nine-dash line”, an ill-defined loop that encompasses the majority of the area of the South China Sea, as can be seen by its extensive construction on a number of reefs it controls.

Though the current situation does not inspire confidence in a lasting calm, it nevertheless offers a window of opportunity for regional stakeholders to harness China’s desire to avert another major deterioration in relations. In particular, Beijing has struck a more cooperative tone toward ASEAN (Association of South East Asian Nations). The ten-member grouping is pushing for a formal Code of Conduct to guard against and mitigate the impact of accidental clashes leading to confrontation.

Beijing’s tactical adjustment could be another instance of its well-established practice of oscillating between assertive actions to expand control followed by gestures to repair diplomatic ties and consolidate gains. This cycle has become more compressed in recent years, with shorter lulls and more-frequent flare-ups, owing in part to China’s increased desire and capability to advance its claims.

Beijing’s twin policy goals of stability on its periphery and safeguarding asserted maritime rights, which are inherently inconsistent in the context of the South China Sea, mean it continues to seek opportunities to gain ground when it deems tensions are manageable. Although the aftermath of the oil-rig deployment triggered a reassessment, not least because it led to a strengthening of ties between key South East Asian claimants and the U.S., the mainstream of its foreign policy analysts concluded that China needs only to push its claims with more patience and tactical savvy, rather than reconsider the claims as such.

President Xi Jinping’s foreign policy style has been characterised by a combination of soothing words and muscular actions, leading domestic and external observers to conclude he is more nationalist, more determined to assert maritime claims and less risk-averse than his predecessor. In an environment where a hard line carries far less political risk than moderation, foreign policy decision-making and implementation skew toward stridency.

Accordingly, confidence in China’s promise of a “peaceful development” has been dropping in key capitals around the region. The Philippines reacted to a sense of “being bullied by China” by tightening relations with its treaty ally, the U.S. Members of the Manila policy establishment who supported bilateral engagement with Beijing lost influence after a mid-2012 standoff that began with the Philippines trying to arrest a group of Chinese fishermen and ended with China seizing control of the Scarborough Shoal, claimed by both but controlled by neither before the incident. In January 2013, Manila initiated international arbitration of its dispute with China. Beijing was incensed, refused to participate, and bilateral relations have gone into a virtual freeze.

Although Beijing’s subsequent gestures at repairing ties with Vietnam have restored some hope in bilateral diplomacy, the deployment of the oil rig has done lasting damage to Hanoi’s confidence in both the predictability and intentions of its giant neighbour. Vietnam is hedging the uncertainty by courting Washington; pushing ASEAN to take a more proactive role in managing South China Sea issues; and preparing a possible legal case of its own against China.

Indonesia, ASEAN’s largest member and de facto leader, views Beijing’s strategic intentions warily. It says it is not a South China Sea claimant but has lodged protests against the nine-dash line, which appears to extend claims to near Indonesia’s Natuna Islands. Since 2009, China has reportedly reacted sharply to Jakarta’s attempt to enforce its laws against Chinese boats allegedly fishing illegally. The splintering of ASEAN in 2012 over South China Sea issues distressed Indonesia, which is invested in its norms and unity, and raised questions among the foreign policy elite about whether China seeks to undermine the regional body.

Beijing’s revision to its tactics offers an opportunity to break the debilitating cycle of tension spikes followed by relative calm. Overtures to secure the region’s cooperation for its 21st Century Maritime Silk Road initiative, a Xi Jinping priority, may provide further scope for multilateral diplomacy at a time when Beijing is verbally endorsing ASEAN’s lead role in maintaining South China Sea peace and stability – even if it does so mainly to block U.S. influence and rein in the Philippines. Indonesia is still resolved to guide the formulation of a maritime Code of Conduct, which would commit claimants to a set of consensus-based behavioural norms. Vietnam and the Philippines are also still invested in that ASEAN-driven process. The 2015 ASEAN chair, Malaysia, is well positioned to lead, as a claimant country that has amicable relations with China and is one of the more diplomatically capable members. The region thus stands a credible chance to experience a more durable calm in the troubled waters.

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