兩岸於南海地區建構聯合搜救機制之可行性探究

Abstract

本研究以海峽兩岸現行之海難救援機制、搜救能力、法令限制、政治因素的影響及解決方式為範圍，列舉兩岸過去於臺灣海域或周邊海域共同執行之海上救難實例及數據進行分析，進一步探究臺灣與中國大陸於南海地區共同建構海上聯合搜救機制的可行性。\n南海地區資源蘊藏豐富，1994年11月「聯合國海洋法公約」生效後，各沿海國紛紛公布200浬專屬經濟海域，爭取自身國家之海洋權益，致使南海臨海國家爭端迭起衝突不斷。然兩岸關係自2008年起大幅改變至今已共同簽署多項之合作協議，但兩岸對主權之認知在現階段仍存有相當之差異，惟人道救援是為最不具爭議性之議題，兩岸對於海難救助並未存有太大之歧見，迄今於臺灣海峽或周邊海域共同執行之海上搜救實例，無論船籍國或遇難人員之國籍，兩岸救難單位於獲報後啟動救援機制，除以「就近就便、及時救援」之原則積極投入，更擱置政治層次較高的主權爭議，就低層次之「海上搜救」進行整合，共同合作達到人道救援之國際理念。這就是新功能學派所提出的，兩岸所有參與海上聯合搜救者的「認知」能讓兩岸整合工程進展變得有意義。\n然兩岸在南海地區建構聯合搜救機制實務工作上，仍面臨臺灣尚未加入南海區域性組織、救難能量略顯不足、缺乏專業救難艦、海難搜救多頭馬車能量難以維持及延伸，以及南海周邊國家主權紛爭未間歇、區域衝突不斷、互信不足等困境及挑戰。因之針對建構兩岸南海地區聯合搜救機制之可行性，本研究建議：（一）兩岸共同擱置南海主權爭議，以人道救援之普世價值解決政治因素下現行政府法令對兩岸執行救援工作之侷限，譬如：於南海舉辦實兵聯合海上救援演練、建立簡捷無誤之通報系統、律定共通通訊頻道、持續民間共通之報案專線以及建立兩岸官方通報管道等。（二）臺灣主動積極擴大參與南海及各項區域組織和對話機制，與南海周邊國家建立合作關係。（三）在實際救援能量及機制上，臺灣掌握主動能量互補，統一海難救助事權，籌建大型專業救難艦，增設南海空中救難機隊。此外兩岸跳脫法令規範限制，共同修訂相關法令，訂定雙方官方奬疇措施，更將搜救機制朝向資管化。

Regarding the issue of maritime search and rescue, this study first introduced the mechanism or resources of maritime search, legal restrictions, the impacts of political factors and solutions, and rescue cases between Taiwan and China. It further explores the possibilities of across-strait coordinating mechanism of maritime search and rescue in the South China Sea.\n\nIt is believed that the South China Sea holds huge oil and gas reserves beneath its seabed. Since “The United Nations Convention on the Law of the Sea” was effective on November 1994, several countries around the South China Sea claimed its own 200 miles exclusive economic zone over this area and regional disputes had being persistent. However, a few agreements between Taiwan and China have been signed since 2008, relations across the Taiwan Straits eased gradually. Although the sovereignty dispute still exists, both Taiwan and China have come to an agreement on the universal value of humanitarian search and rescue. Rescue workers in Taiwan and China have worked together in a few marine casualties or incidents occurred in Taiwan Strait, East China Sea or South China Sea. This is complying with the view of neo-functionalism of integration theory, a theoretical approach used in this study to further explore the possibilities of across-strait coordinating mechanism of maritime search and rescue in the South China Sea\n\nThis study suggests that: (1) Both Taiwan and China should put aside the sovereignty disputes, implement maritime search and rescue drills in the South China Sea, create mutual radio communication channel and official hotline based on the universal value of humanitarian search and rescue. (2) The government of Taiwan should take an active role to participate in different regional organizations of South China Sea, to establish diplomatic relations and partnerships with countries around the area. (3) As the mechanism of maritime search and rescue is regarded, an overall plan, official rescue team, professional rescue ship and air rescue service are needed in Taiwan. Meanwhile, both Taiwan and China should amend the mutual rescue regulations, reward policies and manage the information systems to enhance the rescue efforts.