South China Sea Issue in China-ASEAN Relations: an Alternative Approach to Ease the Tension+
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International Journal of ChinaSouth Studies China Sea Issue in China-ASEAN Relations 585 Vol. 2, No. 3, December 2011, pp. 585-600 South China Sea Issue in China-ASEAN Relations: An Alternative Approach to Ease the Tension+ Shen Hongfang* Xiamen University Abstract The rising tension in the South China Sea since 2009 almost overturns the sound political and economic relations established between China and the ASEAN states since 1997. Better handling of the issue to ease the tension of territorial disputes in the South China Sea is thus the key to good- neighbourliness among China and ASEAN’s claiming states. The ASEAN- China Declaration of the Conduct of Parties (DOC) signed by China and the ASEAN countries in 2002 has not reached its purpose of promoting a peaceful, friendly and harmonious environment in the South China Sea. Instead, the past decade has witnessed numerous clashes between the sovereignty-claimants. Hence, the South China Sea has actually become a potential “battlefield” if consultations or negotiations among the parties concerned have not been effectively or well handled. This paper describes the current overlapping sovereignty claims of related parties around the South China Sea, introduces the mainstream opinions in mainland China toward this critical sovereignty issue, and discusses the evolving academic viewpoints of the Chinese scholars on the South China Sea’s territorial disputes, and attempts to seek an alternative approach to handle these complicated sovereignty disputes and raises some proposals for this purpose. Keywords: China, ASEAN, South China Sea (SCS), diplomacy, sovereignty JEL classification: F51, F52, F59, N45 1. Introduction The tension in the South China Sea (SCS) among China and the ASEAN claming states over sovereignty has drastically escalated since 2009, and has almost overturned the sound political and economic relations established between China and the concerned states since 1997. Hitherto, the relations IJCS 2-3 combined text 18-11-11.585 585 11/18/2011 12:43:50 AM 586 Shen Hongfang were usually described as “the “the golden age of partnership”.1 Therefore, better handling the issue so as to ease the tension of territorial disputes of South China Sea among the sovereignty-claming states is the key to good- neighbourliness among China and ASEAN’s claiming states. The 1982 UN Convention on the Law of Sea (UNCLOS) created a number of guidelines concerning the statues of islands, the continental shelf, enclosed seas, and territorial limits. However, the guidelines have not solved the territorial jurisdictional disputes, but added complications to the overlapping claims in the South China Sea. Among those relevant to the South China Sea are: (1) Article 3, which states that “every state has the right to establish the breadth of its territorial sea up to a limit not exceeding 12 nautical miles”. (2) Article 55-75 define the concept of an Exclusive Economic Zone (EEZ), which is an area up to 200 nautical miles beyond and adjacent to the territorial sea. The EEZ gives coastal states “sovereign rights for the purpose of exploring and exploiting, conserving and managing the natural resources, whether living or non-living, of the waters superjacent to the seabed and its subsoil…” (3) Article 76 defines the continental shelf of a nation, which “comprises the seabed and subsoil of the submarine areas that extend beyond its territorial sea throughout the natural prolongation of its land territory to the outer edge of the continental margin, or to a distance of 200 nautical miles …” This is important because Article 77 allows every nation or party to exercise “over the continental shelf sovereign rights for the purpose of exploring it and exploiting its natural resources.” (4) Article 121 states rocks that cannot sustain human habitation or economic life of their own shall have no exclusive economic zone or continental shelf.2 Thus, it can be seen that the establishment of the EEZ creates the potential for overlapping claims in the South China Sea. Claims could be made by any nation that could establish a settlement on the islands in the region. The ASEAN-China Declaration of the Conduct of Parties (DOC) on the South China Sea signed by China and ASEAN countries in 2002 also has not reached its purpose of promoting a peaceful, friendly and harmonious environment in the South China Sea. Instead, the past decade has witnessed numerous clashes between China and Vietnam, China and the Philippines, Taiwan and the Vietnam, Vietnam and the Philippines, the Philippines and Malaysia, and Malaysia and Brunei. The South China Sea has actually become potential “battle field” if consultations or negotiations among the parties concerned have not been effectively or well handled. After a brief description on the current overlapping sovereignty claims of related parties around the sea, this paper then introduces the mainstream opinions of the Chinese people in mainland China toward this critical sovereignty issue, followed up by a discussion on the evolving academic viewpoints of the Chinese scholars toward the South China Sea’s territorial IJCS 2-3 combined text 18-11-11.586 586 11/18/2011 12:43:50 AM South China Sea Issue in China-ASEAN Relations 587 disputes, along with the development of the situation in the region. From the academic perspective, this paper also attempts to seek an alternative approach to handle the complicated sovereignty disputes, and raise some proposals. First is the establishment of an effective mechanism for this particular issue within the framework of ASEAN-China Strategic Partnership for Peace and Prosperity, with an aim to develop a code of conduct with binding guidelines for actions related to fishery, transportation, oil exploration, etc. Second, bilateral and multilateral dialogues are needed in mitigating tensions over South China Sea, and East Asia Summit (EAS) can play an important role in this respect. Third, emphasis should be put on setting aside disputes for joint maintenance of maritime security, and the governments concerned should pledge not to seek unilateral benefit from security cooperation. 2. Main Actions of Sovereignty-Claiming States in this New Round of Tension of South China Sea Disputes and the Reasons 2.1. Main Actions of Sovereignty-Claiming States since 2009 The South China Sea has long been a disputed region with overlapping claims of sovereignty rights by five countries and six parties, based on reasons as different as century-old principle of discovery, 200-mile exclusive economic zone (EEZ), geographic proximity, effective occupation and control, and vital interest. As matter of fact, UNCLOS added even more complicating and contra- dictory factors to the solution of territory disputes in the South China Sea. The Commission on the Limits of the Continental Shelf (CLCS or the Commission), a body set by UNCLOS to accept submissions of claims by the Coastal States Parties (CSP) to define the outer limit of extended con- tinental shelf.3 Due to the approaching deadline (13th May 1999) of claiming outer continental shelves (OCS) designed by the Commission on the Limits of the Continental Shelf, the tension in the South China Sea between China and the ASEAN’s claiming states has been increasing since 2009.4 On 6th May 2009, Malaysia and Vietnam made a joint submission relating to an area in the South of the South China Sea. On 8th May 2009, Vietnam made a submission on its own relating to an area near the centre of the South China Sea. Previously, Vietnam had invited Brunei to make a joint submission together with Malaysia. On 12th May 2009, Brunei had made a submission to the CLCS to show that a disputed area of the South China Sea is also situated beyond 200 nautical miles from the baseline from which Brunei’s territorial sea is measured, but Brunei had not protested Malaysia and Vietnam’s joint submission.5 IJCS 2-3 combined text 18-11-11.587 587 11/18/2011 12:43:50 AM 588 Shen Hongfang While Indonesia is not technically a claimant state, it has a clear interest in the issue, especially as the “nine-dotted line” map, from which the Chinese claim is based upon, actually includes the water around the Natuna Islands. In an interview, Indonesian President Susilo Banbang Yudhoyono, claimed that as the chair of ASEAN this year, one of his top priorities would be to make progress over the South China Sea disputes by bringing China into multilateral talks. However, Indonesia “has not taken the action to submit claims to CLCS. Since the 1990s, Jakarta “has sought clarification over Chinese claims, but has so far failed to receive an unequivocal response.”6 The Philippines has not made a submission to CLCS for any area in the South China Sea. The reason for not making such a submission is to “avoid creating new conflicts or exacerbating existing ones.” The Philippines has not protested immediately either Vietnam’s own submission or Malaysia and Vietnam’s joint submission.7 Nevertheless, on 16th February 2009, the final version of a bill that determines Philippine’s archipelagic baselines was given approval by a legislative committee. The bill placed the disputed islands in the South China Sea – Scarborough Shoal and Kalayaan Island Group – under a regime of Islands of the Republic of the Philippines, while they were also claimed by the other three parties, Vietnam, China, and Chinese Taipei.8 On 10th March 2009, the former President Gloria Macapagal-Arroyo signed the bill. Akbayan party member and academic Dr Walden Bello has also made a legislative proposal (House Resolution No. 1350) officially naming the region the “West Philippine Sea” in order to strengthen the Philippine’s claims to these controversial waters and the natural resources found within.9 On 10th June 2011, the Aquino government has apparently made it settled doctrine to use “West Philippine Sea” to refer to the waters west of the country via a statement of Malacañang through China’s Ambassador to the Philippines Mr Liu Jianchao 刘建超.10 On 7th May 2009, China made immediate objections to the Vietnamese submission and Vietnamese-Malaysian joint submissions to CLCF.