南海问题的历史与现实
The History and Reality of the South China Sea Issue
驻加拿大大使丛培武
By H.E. Cong Peiwu, Ambassador of the People’s Republic of China to Canada
2020年9月10日
10 September 2020
20年前我第一次在中国驻加拿大使馆工作时，曾主管过东盟地区论坛（ARF）事务。中加都是ARF成员，双方在ARF事务上保持着密切沟通，也多次就南海问题交换意见。我注意到，当前加各界对南海问题更加关注。我愿借此机会梳理南海问题历史经脉和现状，增进大家对这一问题的了解。
Twenty years ago, when I worked with the Chinese Embassy in Canada for the first time, I was in charge of the ASEAN Regional Forum (ARF) related affairs. As ARF members, China and Canada have maintained close communication on ARF affairs and exchanged views regarding the South China Sea issue on many occasions. At present, there is increasing interest and attention over the South China Sea issue. As such, I would like to take this opportunity to share with the readers of the history and reality of this complex South China Sea issue.
首先，中国对南海诸岛主权的历史和法理依据
The first topic of discussion is to illustrate the history and legal basis of China’s sovereignty claim over the South China Sea islands.
中国在南海的活动已有2000多年的历史。早在公元前2世纪，中国人民就在南海航行，并在长期实践中发现了南海诸岛。根据中外史料记载和考古发现，南海诸岛部分岛礁上曾有中国渔民留下的作物、水井、房屋、庙宇、墓冢和碑刻等。许多外国文献记录了很长一段时间内只有中国人在南海诸岛生产生活的事实。中国人民在长期开发利用南海诸岛的进程中，逐步形成并完善了中方在南海包括历史性权利在内的相关权利，并为历届中国政府所坚持。
Chinese activities in the South China Sea date back over 2,000 years. As early as the 2nd century B.C., Chinese sailors explored the South China Sea and discovered what they called Nanhai Zhudao (aka the South China Sea islands). Well documented by both Chinese and foreign historical materials and archaeological digs, there is evidence of ancient crops, wells, houses, temples, tombs, and inscriptions left by Chinese fishermen on some of the islands and reefs of the South China Sea islands. Many foreign documents illustrate clearly that for a lengthy historical duration, only Chinese people lived and worked on these South China Sea islands. Throughout this long process of exploring and developing the South China Sea islands, the Chinese people have gradually increased and improved China’s side rights in the South China Sea. These include historic claims, which have in turn been upheld by successive Chinese governments.
20世纪30年代至40年代，法国和日本先后以武力非法侵占中国西沙群岛、南沙群岛部分岛礁。对此，中国人民和中国政府奋起捍卫主权。二战结束后，日本根据1943年《开罗宣言》和1945年《波茨坦公告》，将窃取的中国领土，包括台湾和澎湖列岛、西沙群岛和南沙群岛等归还中国。1948年，中国公开发行了中国行政区域图，眀确标注南海断续线，重申在南海的主权和相关权利。南海断续线公布后的很长时间内，南海周边国家和国际社会或明确支持或默认，没有任何国家表示反对或提出质疑。二战后，美国、苏联、日本等国家以及越南、菲律宾等南海周边国家很多地图都画出南海断续线，并眀确将南沙群岛等标注为中国领土。
In the 1930’s and 1940’s, France and Japan illegally invaded and militarily occupied some of the islands and reefs of China’s Xisha Islands and Nansha Islands. The Chinese people and the Chinese government have remained steadfastly defiant in their defence of China’s sovereignty over these islands and reefs. After World War II, in accordance with the 1943 Cairo Declaration and the 1945 Potsdam Proclamation, Japan returned to China the Chinese territories it had occupied, including Taiwan and the Penghu Islands, the Xisha Islands and the Nansha Islands. In 1948, China published a map of China’s administrative regions, clearly marking the nine-dotted line of the South China Sea, which reaffirmed China’s sovereignty claim and related rights over this territory. For a long time after the announcement of the nine-dotted line of the South China Sea, this claim was recognized by the countries bordering the South China Sea and the international community. This recognition, whether explicit or by tacit agreement, aroused no query or objection by any foreign country at the time. After World War II, the nine-dotted line of the South China Sea was the national demarcation line drawn on many official maps produced by the United States, the Soviet Union, Japan among others. Even those neighbouring countries around the South China Sea, such as Vietnam and the Philippines, had maps recognizing that the Nansha Islands were clearly marked as Chinese territory.
1958年9月4日，中国政府发布《中华人民共和国政府关于领海的声明》，宣布中华人民共和国的一切领土包括东沙群岛、西沙群岛、中沙群岛、南沙群岛以及其他属于中国的岛屿。在许多国家出版的百科全书、年鉴和地图也都将南沙群岛标属中国。1998年，中国政府颁布实施《专属经济区和大陆架法》，再次重申中方在南海享有的历史性权利。中国政府还坚持南海断续线主张。2016年7月12日，中国政府发表《关于在南海的领土主权和海洋权益声明》重申，“中国在南海拥有历史性权利”。
On September 4, 1958, the Chinese government issued the Declaration of the Government of the People’s Republic of China on China’s Territorial Sea. This proclamation declared that all the territories of the People’s Republic of China including the Dongsha Islands, the Xisha Islands, the Zhongsha Islands, the Nansha Islands and other islands belonging to China. The encyclopedias, textbooks, and maps published in many countries also list the Nansha Islands as China’s territory. In 1998, the Chinese government promulgated and implemented the Law of the People’s Republic of China on the Exclusive Economic Zone and the Continental Shelf to reaffirm once again China’s historic claim in the South China Sea. The Chinese government also adhered to its territorial position on the nine-dotted line of the South China Sea. On July 12, 2016, the Chinese government issued the Statement of the Government of the People’s Republic of China on China’s Territorial Sovereignty and Maritime Rights and Interests in the South China Sea, reiterating that “China has historic rights in the South China Sea”.
第二，南海问题的由来及中国政策主张
The second point of discussion is regarding the origin of the current South China Sea disputes vis-à-vis China’s policy and position.
20世纪70年代前，中国对南海诸岛的主权从未受到外界的任何挑战。南海之所以产生争议，根源在于一些国家自上世纪70年代起非法侵占中国南沙群岛部分岛礁。此后，随着《联合国海洋法公约》的出台和生效，中国与这些国家之间又产生了专属经济区和大陆架等海洋权益争议。在南海问题上，中国始终奉行“六个坚持”，即坚持维护中国在南海的领土主权和海洋权益，坚持维护南海的和平稳定，坚持通过谈判协商和平解决争议，坚持通过规则机制管控分歧，坚持维护南海的航行与飞越自由，坚持通过合作实现互利共嬴。中国从来不谋求在南海建立“海洋帝国”，始终平等对待南海周边国家，在维护南海主权和权益方面保持着最大克制。2002年11月4日，《南海各方行为宣言》达成，这是中国和东盟国家就南海问题签署的第一份政治文件，为维护南海及地区和平稳定发挥了重要作用。当前，中方正同东盟国家一道，全面有效落实《宣言》，通过对话协商妥善处理有关争议，不采取使争议复杂化、扩大化行动，并积极致力于早日达成“南海行为准则”。“准则”作为《宣言》的升级版，必将符合国际法并妥为照顾域外国家在南海的合法权益，也将成为把南海打造为和平之海、友谊之海、合作之海的制度保障。
Prior to the 1970s, China’s sovereignty over the South China Sea islands had never been challenged by any external forces. The root cause of the disputes over the South China Sea lies in the fact that since that date some countries have invaded and illegally occupied some islands and reefs of China’s Nansha Islands. Since then, with the promulgation and subsequent enforcement of the United Nations Convention on the Law of the Sea, disputes over maritime rights and interests such as exclusive economic zones and continental shelves have arisen between China and these countries. On the South China Sea issue, China remains committed to upholding China’s territorial sovereignty, maritime rights and trade interests in the South China Sea. To accomplish this requires; the maintenance of peace and stability in the South China Sea, resolving disputes peacefully through negotiation and consultation, managing differences through rules and mechanisms, safeguarding freedom of navigation and overflight in the South China Sea, and achieving win-win outcomes through mutually beneficial cooperation. Historically, China has never sought to establish an “empire of the sea” in the South China Sea, but rather they have always treated countries bordering the South China Sea on an equal basis. To date, China has exercised the utmost restraint in safeguarding sovereignty claims, rights and interests in the South China Sea. On November 4, 2002, the Declaration on the Conduct of Parties (DOC) in the South China Sea was signed into agreement. This DOC is the first political document regarding the South China Sea issue to be signed by China and ASEAN countries, and it has played an important role in maintaining peace and stability in the region. The China is currently working with ASEAN countries to; fully and effectively implement the DOC, properly handle relevant disputes through dialogue, avoiding actions which would complicate or escalate disputes, and actively striving to reach achieve a Code of Conduct (COC) for the South China Sea at the earliest opportunity. As an upgraded version of the DOC, the COC will conform to international law and give due consideration to the legitimate rights and interests of countries outside the region in the South China Sea. This COC will therefore become the institutional cornerstone for building the South China Sea into a sea of peace, friendship, and cooperation.
第三，南海的航行自由从来不是问题
The third point I wish to address is the fact that freedom of navigation in the South China Sea has historically never been an issue.
南海是目前世界上最安全、最自由的海上通道之一。中方一贯尊重并支持各国依据国际法在南海享有的航行与飞越自由。全球50%的商船和1/3的海上贸易航经该海域，每年10多万艘商船通过该海域。中国近60%的海上贸易和85%的能源进口经过南海。南海航行与飞越自由从来不是问题。尽管中国和有关国家在南海存在海洋权益争议，但是有关争议从来没有影响到各国依据国际法在南海享有的航行与飞越自由。南海近在中国家门口，是中国的海上生命线。中国比任何国家都珍视南海的和平稳定，更重视维护南海航行通道的畅通与安全。同时，中国坚决反对打着“航行自由”的幌子损害南海沿岸国家主权与安全利益的行为。美国打着“航行自由”的旗号频繁派舰机到南海地区生事。据公开报道，今年上半年美国军机在南海活动多达2000余次。不久前，美国还把双航母舰队开到南海秀肌肉。事实证明，美国上述行径严重威胁南海地区和平稳定，美国已成为南海地区和平稳定的破坏者和麻烦制造者。
The South China Sea is currently one of the safest and most open sea routes in the world. In accordance with international law, China always respects and supports the freedom of navigation and overflight currently exercised by all countries in the South China Sea. Approximately fifty percent of the world’s merchant ships and a third of its maritime trade pass through these waters, with more than 100,000 merchant ships sailing across the area each year. Nearly 60% of China’s maritime trade and 85% of its energy imports pass through the South China Sea. Freedom of navigation and overflight in the South China Sea has never been an issue. Although there have been some disputes over maritime rights and interests between China and other relevant countries, such disputes have never affected the freedom of navigation and overflight enjoyed by all countries in the South China Sea. Located on China’s doorstep, the South China Sea is China’s maritime lifeline. China cherishes the peace and stability of the South China Sea more than any other country and attaches even greater importance to keeping the sea routes of the South China Sea safe and unimpeded. At the same time, China firmly opposes any act that undermines the sovereignty and security interests of countries along the South China Sea under the false pretext of enforcing “freedom of navigation”. The U.S. has frequently sent warships and aircraft to the South China Sea to project their martial presence using this “freedom of navigation” excuse to justify their actions. It is reported that U.S. military aircraft have conducted more than 2,000 sorties in the South China Sea during the first half of this year alone. Not long ago, the U.S. flexed its muscles by sending two aircraft carriers to the South China Sea. Facts have proven that the actions of the U.S. mentioned above pose a significant threat to peace and stability in the South China Sea. The U.S. has been an aggressive meddler through their continued attempts at the disruption of peace and stability in the region.
美国不是南海问题当事国，不是《联合国海洋法公约》缔约国，却一再拿南海问题说事，蓄意离间中国与东盟国家关系，其图谋不会得逞。
The U.S. is not a party in the territorial concerns of the South China Sea issue, nor is the US an adherent to the United Nations Convention on the Law of the Sea. However, the US has repeatedly meddled in the South China Sea issue in a vain attempt to drive a wedge between China and ASEAN countries. It is my opinion that this plot will not work.