深海战略性矿产资源开发的政策逻辑与中国选择

    The policy logic of deep-sea strategic mineral resource development and China’s choice

    • 摘要: 随着大国博弈、国际地缘政治进入新常态,全球战略性矿产资源供需格局、贸易格局与竞争格局加速演进重塑,中国战略性矿产资源产业链供应链面临挑战不确定性增加。近年来,全球陆域战略性矿产资源供给增速放缓,深海战略性矿产资源成为确保国家能源资源安全的重要补充,深海战略性矿产资源勘探开发被众多国家提上日程。深海战略性矿产资源开发作为中国战略性资源产业链供应链优化布局的前瞻性战略,事关国家能源资源安全与全球海洋话语权塑造。但深海矿产资源集中赋存于国际公共海底区域,商业化开采面临复杂的国际竞争与治理难题。在技术资本分布不均与利益诉求多元导致的国际秩序紊乱背景下,深海矿产资源国际制度的改革方向亟待明确。本文系统梳理了国际社会深海矿产资源开发制度的演进历程及基本框架,认为全球深海矿产资源开发领域已形成以《联合国海洋法公约》及《关于执行1982年12月10日〈联合国海洋法公约〉第十一部分的协定的决议》为核心,以《“区域”内多金属结核探矿与勘探规章》《“区域”内多金属硫化物探矿与勘探规章》《“区域”内富钴铁锰介壳探矿与勘探规章》《“区域”内矿物资源开发规章》(草案)和《国家管辖范围以外区域海洋生物多样性的养护和可持续利用协定》为重要补充的制度体系,确立了由国际海底管理局、担保国和承包商三方协同治理的组织架构,共同推动基于“人类共同继承财产”原则的深海矿产资源开发商业化进程。但是,国际深海资源开发法律缺位,深海矿业活动环保争议、发达国家与发展中国家利益分配平衡等制度困境尚未根本解决。基于此,从国际法与国内法协同视角出发,分析了深海矿产资源开发过程中担保国与承包者的责任划分,对比了美国、德国、英国及中国的立法实践,认为中国虽已出台《中华人民共和国深海海底区域资源勘探开发法》并取得勘探进展,但仍需全面提升技术自主性和国际话语权,应加快构建安全效益框架、优化政策体系、深化国际合作,推动深海资源可持续开发,为全球海洋治理贡献中国智慧与力量。

       

      Abstract: As major-power competition and international geopolitics enter a new normal, the global supply-demand dynamics, trade patterns, and competitive landscape of strategic mineral resources are rapidly evolving and being reshaped. This has increased uncertainties and challenges for China’s industrial and supply chains related to these resources. In recent years, the growth in the supply of land-based strategic mineral resources has slowed worldwide, turning deep-sea mineral resources into an important supplement for ensuring national energy and resource security. As a result, many countries have placed the exploration and development of deep-sea strategic mineral resources on their agendas. Deep-sea mineral resource development serves as a forward-looking strategy for optimizing China’s strategic resource industrial and supply chains. It is crucial to national energy and resource security, as well as to shaping global maritime influence. However, these mineral resources are largely concentrated in international seabed areas beyond national jurisdiction, making commercial extraction subject to complex international competition and governance challenges. Against a backdrop of uneven distribution of technology and capital, as well as divergent interests leading to international disorder, there is an urgent need to clarify the direction of reform for the international regime governing deep-sea mineral resources. This paper systematically reviews the evolution and basic framework of the international regime for deep-sea mineral resource development. It argues that a regulatory system has taken shape in this field, centered on the United Nations Convention on the Law of the Sea (UNCLOS) and the 1994 Implementation Agreement; with important supplements including the Regulations on Prospecting and Exploration for Polymetallic Nodules in the Area, the Regulations on Prospecting and Exploration for Polymetallic Sulphides in the Area, the Regulations on Prospecting and Exploration for Cobalt-rich Ferromanganese Crusts in the Area; the Draft Regulations on Exploitation of Mineral Resources in the Area, the Agreement on the Conservation and Sustainable Use of Marine Biological Diversity of Areas Beyond National Jurisdiction. This system establishes a tripartite governance structure involving the International Seabed Authority (ISA), sponsoring states, and contractors, collectively advancing the commercialization of deep-sea mineral resources based on the principle of the “common heritage of mankind”. Nevertheless, fundamental issues remain unresolved, including the absence of a comprehensive legal framework for deep-sea mining, environmental disputes surrounding such activities, and the challenge of balancing interests between developed and developing countries. From the perspective of aligning international and domestic law, the paper analyzes the division of responsibilities between sponsoring states and contractors during deep-sea mineral resource development. It compares legislative practices in the United States, Germany, the United Kingdom, and China, noting that although China has enacted the Law of the People’s Republic of China on Exploration and Development of Resources in Deep Seabed Areas and made progress in exploration, it still needs to enhance its technological autonomy and international influence. The paper concludes that China should accelerate the establishment of a safety-benefit framework, optimize its policy system, and deepen international cooperation to promote the sustainable development of deep-sea resources, thereby contributing Chinese wisdom and strength to global ocean governance.

       

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