《中國(guó)的北極政策》白皮書全文

國(guó)務(wù)院資訊辦公室26日發(fā)表《中國(guó)的北極政策》白皮書。全文如下：

中國(guó)的北極政策

China's Arctic Policy

（2024年1月26日）

January 26, 2024

中華人民共和國(guó)國(guó)務(wù)院資訊辦公室

Information Office of the State Council of the People's Republic of China

目錄

Contents

前言

Foreword">Foreword

一、北極的形勢(shì)與變化

I.The Arctic Situation and Recent Changes

二、中國(guó)與北極的關(guān)系

II. China and the Arctic

三、中國(guó)的北極政策目標(biāo)和基本原則

III. China's Policy Goals and Basic Principles on the Arctic

四、中國(guó)參與北極事務(wù)的主要政策主張

IV. China's Policies and Positions on Participating in Arctic Affairs

結(jié)束語

Conclusion

前言

Foreword">Foreword

近年來，全球氣候變暖，北極冰雪融化加速。在經(jīng)濟(jì)全球化、區(qū)域一體化不斷深入發(fā)展的背景下，北極在戰(zhàn)略、經(jīng)濟(jì)、科研、環(huán)保、航道、資源等方面的價(jià)值不斷提升，受到國(guó)際社會(huì)的普遍關(guān)注。北極問題已超出北極國(guó)家間問題和區(qū)域問題的范疇，涉及北極域外國(guó)家的利益和國(guó)際社會(huì)的整體利益，攸關(guān)人類生存與發(fā)展的共同命運(yùn)，具有全球意義和國(guó)際影響。

Global warming in recent years has accelerated the melting of ice and snow in the Arctic region. As economic globalization and regional integration further develops and deepens, the Arctic is gaining global significance for its rising strategic, economic values and those relating to scientific research, environmental protection, sea passages, and natural resources. The Arctic situation now goes beyond its original inter-Arctic States or regional nature, having a vital bearing on the interests of States outside the region and the interests of the international community as a whole, as well as on the survival, the development, and the shared future for mankind. It is an issue with global implications and international impacts.

中國(guó)倡導(dǎo)構(gòu)建人類命運(yùn)共同體，是北極事務(wù)的積極參與者、建設(shè)者和貢獻(xiàn)者，努力為北極發(fā)展貢獻(xiàn)中國(guó)智慧和中國(guó)力量。為了闡明中國(guó)在北極問題上的基本立場(chǎng)，闡釋中國(guó)參與北極事務(wù)的政策目標(biāo)、基本原則和主要政策主張，指導(dǎo)中國(guó)相關(guān)部門和機(jī)構(gòu)開展北極活動(dòng)和北極合作，推動(dòng)有關(guān)各方更好參與北極治理，與國(guó)際社會(huì)一道共同維護(hù)和促進(jìn)北極的和平、穩(wěn)定和可持續(xù)發(fā)展，中國(guó)政府發(fā)表本白皮書。

A champion for the development of a community with a shared future for mankind, China is an active participant, builder and contributor in Arctic affairs who has spared no efforts to contribute its wisdom to the development of the Arctic region. The Chinese government hereby issues this white paper, to expound its basic positions on Arctic affairs, to elaborate on its policy goals, basic principles and major policies and positions regarding its engagement in Arctic affairs, to guide relevant Chinese government departments and institutions in Arctic-related activities and cooperation, to encourage relevant parties to get better involved in Arctic governance, and to work with the international community to safeguard and promote peace and stability in, and the sustainable development of, the Arctic.

一、北極的形勢(shì)與變化

I.The Arctic Situation and Recent Changes

北極具有特殊的地理位置。地理上的北極通常指北極圈（約北緯66度34分）以北的陸海兼?zhèn)涞膮^(qū)域，總面積約2100萬平方公里。在國(guó)際法語境下，北極包括歐洲、亞洲和北美洲的毗鄰北冰洋的北方大陸和相關(guān)島嶼，以及北冰洋中的國(guó)家管轄范圍內(nèi)海域、公海和國(guó)際海底區(qū)域。北極事務(wù)沒有統(tǒng)一適用的單一國(guó)際條約，它由《聯(lián)合國(guó)憲章》《聯(lián)合國(guó)海洋法公約》《斯匹次卑爾根群島條約》等國(guó)際條約和一般國(guó)際法予以規(guī)范。

The Arctic is situated at a special geographical location. It commonly refers to the area of land and sea north of the Arctic Circle (approximately 66 degrees 34 minutes N), totaling about 21 million square kilometers. In the context of international law, the Arctic includes the northernmost landmasses of Europe, Asia and North America adjacent to the Arctic Ocean and the relevant islands, and a combination of sea areas within national jurisdiction, high seas, and the Area in the Arctic Ocean. There is no single comprehensive treaty for all Arctic affairs. The Charter of the United Nations, the United Nations Convention on the Law of the Sea (UNCLOS), the Spitsbergen Treaty and other treaties and general international law govern Arctic affairs at present.

北極的大陸和島嶼面積約800萬平方公里，有關(guān)大陸和島嶼的領(lǐng)土主權(quán)分別屬于加拿大、丹麥、芬蘭、冰島、挪威、俄羅斯、瑞典、美國(guó)八個(gè)北極國(guó)家。北冰洋海域的面積超過1200萬平方公里，相關(guān)海洋權(quán)益根據(jù)國(guó)際法由沿岸國(guó)和各國(guó)分享。北冰洋沿岸國(guó)擁有內(nèi)水、領(lǐng)海、毗連區(qū)、專屬經(jīng)濟(jì)區(qū)和大陸架等管轄海域，北冰洋中還有公海和國(guó)際海底區(qū)域。

The continental and insular land territories in the Arctic cover an area of about 8 million square kilometers, with sovereignty over them belonging to Canada, Denmark, Finland, Iceland, Norway, Russia, Sweden and the United States, respectively. The Arctic Ocean covers an area of more than 12 million square kilometers, in which coastal States and other States share maritime rights and interests in accordance with international law. These coastal States have within their jurisdiction internal waters, territorial seas, contiguous zones, exclusive economic zones, and continental shelves in the Arctic Ocean. Certain areas of the Arctic Ocean form part of the high seas and the Area.

北極域外國(guó)家在北極不享有領(lǐng)土主權(quán)，但依據(jù)《聯(lián)合國(guó)海洋法公約》等國(guó)際條約和一般國(guó)際法在北冰洋公海等海域享有科研、航行、飛越、捕魚、鋪設(shè)海底電纜和管道等權(quán)利，在國(guó)際海底區(qū)域享有資源勘探和開發(fā)等權(quán)利。此外，《斯匹次卑爾根群島條約》締約國(guó)有權(quán)自由進(jìn)出北極特定區(qū)域，并依法在該特定區(qū)域內(nèi)平等享有開展科研以及從事生產(chǎn)和商業(yè)活動(dòng)的權(quán)利，包括狩獵、捕魚、采礦等。

States from outside the Arctic region do not have territorial sovereignty in the Arctic, but they do have rights in respect of scientific research, navigation, overflight, fishing, laying of submarine cables and pipelines in the high seas and other relevant sea areas in the Arctic Ocean, and rights to resource exploration and exploitation in the Area, pursuant to treaties such as UNCLOS and general international law. In addition, Contracting Parties to the Spitsbergen Treaty enjoy the liberty of access and entry to certain areas of the Arctic, the right under conditions of equality and, in accordance with law, to the exercise and practice of scientific research, production and commercial activities such as hunting, fishing, and mining in these areas.

北極具有獨(dú)特的自然環(huán)境和豐富的資源，大部分海域常年被冰層覆蓋。當(dāng)前，北極自然環(huán)境正經(jīng)歷快速變化。過去30多年間，北極地區(qū)溫度上升，使北極夏季海冰持續(xù)減少。據(jù)科學(xué)家預(yù)測(cè)，北極海域可能在本世紀(jì)中葉甚至更早出現(xiàn)季節(jié)性無冰現(xiàn)象。一方面，北極冰雪融化不僅導(dǎo)致北極自然環(huán)境變化，而且可能引發(fā)氣候變暖加速、海平面上升、極端天氣現(xiàn)象增多、生物多樣性受損等全球性問題。另一方面，北極冰雪融化可能逐步改變北極開發(fā)利用的條件，為各國(guó)商業(yè)利用北極航道和開發(fā)北極資源提供機(jī)遇。北極的商業(yè)開發(fā)利用不僅將對(duì)全球航運(yùn)、國(guó)際貿(mào)易和世界能源供應(yīng)格局產(chǎn)生重要影響，對(duì)北極的經(jīng)濟(jì)社會(huì)發(fā)展帶來巨大變化，對(duì)北極居民和土著人的生產(chǎn)和生活方式產(chǎn)生重要影響，還可能對(duì)北極生態(tài)環(huán)境造成潛在威脅。在處理涉北極全球性問題方面，國(guó)際社會(huì)命運(yùn)與共。

The Arctic boasts a unique natural environment and rich resources, with most of its sea area covered under thick ice for most of the year. The Arctic natural environment is now undergoing rapid changes. Over the past three decades, temperature has been rising continuously in the Arctic, resulting in diminishing sea ice in summer. Scientists predict that by the middle of this century or even earlier, there may be no ice in the Arctic Ocean for part of the year. On the one hand, melting ice in the Arctic has led to changes in the natural environment, or possibly can result in accelerated global warming, rising sea levels, increased extreme weather events, damaged biodiversity, and other global problems. On the other, with the ice melted, conditions for the development of the Arctic may be gradually changed, offering opportunities for the commercial use of sea routes and development of resources in the region. Commercial activities in the region will have considerable impact on global shipping, international trade and energy supply, bring about major social and economic changes, and exert important influence on the way of work and life of Arctic residents including the indigenous peoples. They may also pose a potential threat to the ecological environment of the Arctic. The international community faces the same threat and shares the same future in addressing global issues concerning the Arctic.

二、中國(guó)與北極的關(guān)系

II. China and the Arctic

中國(guó)是北極事務(wù)的重要利益攸關(guān)方。中國(guó)在地緣上是“近北極國(guó)家”，是陸上最接近北極圈的國(guó)家之一。北極的自然狀況及其變化對(duì)中國(guó)的氣候系統(tǒng)和生態(tài)環(huán)境有著直接的影響，進(jìn)而關(guān)系到中國(guó)在農(nóng)業(yè)、林業(yè)、漁業(yè)、海洋等領(lǐng)域的經(jīng)濟(jì)利益。

China is an important stakeholder in Arctic affairs. Geographically, China is a "Near-Arctic State", one of the continental States that are closest to the Arctic Circle. The natural conditions of the Arctic and their changes have a direct impact on China's climate system and ecological environment, and, in turn, on its economic interests in agriculture, forestry, fishery, marine industry and other sectors.

同時(shí)，中國(guó)與北極的跨區(qū)域和全球性問題息息相關(guān)，特別是北極的氣候變化、環(huán)境、科研、航道利用、資源勘探與開發(fā)、安全、國(guó)際治理等問題，關(guān)系到世界各國(guó)和人類的共同生存與發(fā)展，與包括中國(guó)在內(nèi)的北極域外國(guó)家的利益密不可分。中國(guó)在北冰洋公海、國(guó)際海底區(qū)域等海域和特定區(qū)域享有《聯(lián)合國(guó)海洋法公約》《斯匹次卑爾根群島條約》等國(guó)際條約和一般國(guó)際法所規(guī)定的科研、航行、飛越、捕魚、鋪設(shè)海底電纜和管道、資源勘探與開發(fā)等自由或權(quán)利。中國(guó)是聯(lián)合國(guó)安理會(huì)常任理事國(guó)，肩負(fù)著共同維護(hù)北極和平與安全的重要使命。中國(guó)是世界貿(mào)易大國(guó)和能源消費(fèi)大國(guó)，北極的航道和資源開發(fā)利用可能對(duì)中國(guó)的能源戰(zhàn)略和經(jīng)濟(jì)發(fā)展產(chǎn)生巨大影響。中國(guó)的資金、技術(shù)、市場(chǎng)、知識(shí)和經(jīng)驗(yàn)在拓展北極航道網(wǎng)絡(luò)和促進(jìn)航道沿岸國(guó)經(jīng)濟(jì)社會(huì)發(fā)展方面可望發(fā)揮重要作用。中國(guó)在北極與北極國(guó)家利益相融合，與世界各國(guó)休戚與共。

China is also closely involved in the trans-regional and global issues in the Arctic, especially in such areas as climate change, environment, scientific research, utilization of shipping routes, resource exploration and exploitation, security, and global governance. These issues are vital to the existence and development of all countries and humanity, and directly affect the interests of non-Arctic States including China. China enjoys the freedom or rights of scientific research, navigation, overflight, fishing, laying of submarine cables and pipelines, and resource exploration and exploitation in the high seas, the Area and other relevant sea areas, and certain special areas in the Arctic Ocean, as stipulated in treaties such as the UNCLOS and the Spitsbergen Treaty, and general international law. As a permanent member of the UN Security Council, China shoulders the important mission of jointly promoting peace and security in the Arctic. The utilization of sea routes and exploration and development of the resources in the Arctic may have a huge impact on the energy strategy and economic development of China, which is a major trading nation and energy consumer in the world. China's capital, technology, market, knowledge and experience is expected to play a major role in expanding the network of shipping routes in the Arctic and facilitating the economic and social progress of the coastal States along the routes. China has shared interests with Arctic States and a shared future with the rest of the world in the Arctic.

中國(guó)參與北極事務(wù)由來已久。1925年，中國(guó)加入《斯匹次卑爾根群島條約》，正式開啟參與北極事務(wù)的進(jìn)程。此后，中國(guó)關(guān)于北極的探索不斷深入，實(shí)踐不斷增加，活動(dòng)不斷擴(kuò)展，合作不斷深化。1996年，中國(guó)成為國(guó)際北極科學(xué)委員會(huì)成員國(guó)，中國(guó)的北極科研活動(dòng)日趨活躍。從1999年起，中國(guó)以“雪龍”號(hào)科考船為平臺(tái)，成功進(jìn)行了多次北極科學(xué)考察。2004年，中國(guó)在斯匹次卑爾根群島的新奧爾松地區(qū)建成“中國(guó)北極黃河站”。截至2024年年底，中國(guó)在北極地區(qū)已成功開展了八次北冰洋科學(xué)考察和14個(gè)年度的黃河站站基科學(xué)考察。借助船站平臺(tái)，中國(guó)在北極地區(qū)逐步建立起海洋、冰雪、大氣、生物、地質(zhì)等多學(xué)科觀測(cè)體系。2005年，中國(guó)成功承辦了涉北極事務(wù)高級(jí)別會(huì)議的北極科學(xué)高峰周活動(dòng)，開亞洲國(guó)家承辦之先河。2024年，中國(guó)成為北極理事會(huì)正式觀察員。近年來，中國(guó)企業(yè)開始積極探索北極航道的商業(yè)利用。中國(guó)的北極活動(dòng)已由單純的科學(xué)研究拓展至北極事務(wù)的諸多方面，涉及全球治理、區(qū)域合作、多邊和雙邊機(jī)制等多個(gè)層面，涵蓋科學(xué)研究、生態(tài)環(huán)境、氣候變化、經(jīng)濟(jì)開發(fā)和人文交流等多個(gè)領(lǐng)域。作為國(guó)際社會(huì)的重要成員，中國(guó)對(duì)北極國(guó)際規(guī)則的制定和北極治理機(jī)制的構(gòu)建發(fā)揮了積極作用。中國(guó)發(fā)起共建“絲綢之路經(jīng)濟(jì)帶”和“21世紀(jì)海上絲綢之路”（“一帶一路”）重要合作倡議，與各方共建“冰上絲綢之路”，為促進(jìn)北極地區(qū)互聯(lián)互通和經(jīng)濟(jì)社會(huì)可持續(xù)發(fā)展帶來合作機(jī)遇。

China has long been involved in Arctic affairs. In 1925, China joined the Spitsbergen Treaty and started to participate in addressing the Arctic affairs. Since then, China has exerted more efforts in the exploration of the Arctic, expanding the scope of activities, gaining more experience and deepening cooperation with other participants. China's membership in the International Arctic Science Committee in 1996 marked its more active participation in scientific research in the Arctic. Since 1999, China has organized a number of scientific expeditions in the Arctic, with its research vessel Xue Long (Snow Dragon) as the platform. In 2004, China built the Arctic Yellow River Station in Ny Alesund in the Spitsbergen Archipelago. By the end of 2024, China has carried out eight scientific expeditions in the Arctic Ocean, and conducted research for 14 years with the Yellow River Station as the base. Using its research vessel and stations as platforms, China has gradually established a multi-discipline observation system covering the sea, ice and snow, atmosphere, biological, and geological system of the Arctic. The year 2005 saw China as the first Asian country to host the Arctic Science Summit Week, a high-level conference on Arctic affairs. In 2024, China became an accredited observer to the Arctic Council. In recent years, Chinese companies have begun to explore the commercial opportunities associated with Arctic shipping routes. China's activities in the Arctic have gone beyond mere scientific research, and expanded into diverse areas of Arctic affairs including the platforms of global governance, regional cooperation, and bilateral and multilateral affairs, and such disciplines as scientific research, ecological environment, climate change, economic development, and cultural exchanges. As an important member of the international community, China has played a constructive role in the formulation of Arctic-related international rules and the development of its governance system. The Silk Road Economic Belt and the 21st-century Maritime Silk Road (Belt and Road Initiative), an important cooperation initiative of China, will bring opportunities for parties concerned to jointly build a "Polar Silk Road", and facilitate connectivity and sustainable economic and social development of the Arctic.

三、中國(guó)的北極政策目標(biāo)和基本原則

III. China's Policy Goals and Basic Principles on the Arctic

中國(guó)的北極政策目標(biāo)是：認(rèn)識(shí)北極、保護(hù)北極、利用北極和參與治理北極，維護(hù)各國(guó)和國(guó)際社會(huì)在北極的共同利益，推動(dòng)北極的可持續(xù)發(fā)展。

China's policy goals on the Arctic are: to understand, protect, develop and participate in the governance of the Arctic, so as to safeguard the common interests of all countries and the international community in the Arctic, and promote sustainable development of the Arctic.

認(rèn)識(shí)北極就是要提高北極的科學(xué)研究水平和能力，不斷深化對(duì)北極的科學(xué)認(rèn)知和了解，探索北極變化和發(fā)展的客觀規(guī)律，為增強(qiáng)人類保護(hù)、利用和治理北極的能力創(chuàng)造有利條件。

To understand the Arctic,China will improve the capacity and capability in scientific research on the Arctic, pursue a deeper understanding and knowledge of the Arctic science, and explore the natural laws behind its changes and development, so as to create favorable conditions for mankind to better protect, develop, and govern the Arctic.

保護(hù)北極就是要積極應(yīng)對(duì)北極氣候變化，保護(hù)北極獨(dú)特的自然環(huán)境和生態(tài)系統(tǒng)，不斷提升北極自身的氣候、環(huán)境和生態(tài)適應(yīng)力，尊重多樣化的社會(huì)文化以及土著人的歷史傳統(tǒng)。

To protect the Arctic, China will actively respond to climate change in the Arctic, protect its unique natural environment and ecological system, promote its own climatic, environmental and ecological resilience, and respect its diverse social culture and the historical traditions of the indigenous peoples.

利用北極就是要不斷提高北極技術(shù)的應(yīng)用水平和能力，不斷加強(qiáng)在技術(shù)創(chuàng)新、環(huán)境保護(hù)、資源利用、航道開發(fā)等領(lǐng)域的北極活動(dòng)，促進(jìn)北極的經(jīng)濟(jì)社會(huì)發(fā)展和改善當(dāng)?shù)鼐用竦纳顥l件，實(shí)現(xiàn)共同發(fā)展。

To develop the Arctic, China will improve the capacity and capability in using applied Arctic technology, strengthen technological innovation, environmental protection, resource utilization, and development of shipping routes in the Arctic, and contribute to the economic and social development of the Arctic, improve the living conditions of the local people and strive for common development.

參與治理北極就是要依據(jù)規(guī)則、通過機(jī)制對(duì)北極事務(wù)和活動(dòng)進(jìn)行規(guī)范和管理。對(duì)外，中國(guó)堅(jiān)持依據(jù)包括《聯(lián)合國(guó)憲章》《聯(lián)合國(guó)海洋法公約》和氣候變化、環(huán)境等領(lǐng)域的國(guó)際條約以及國(guó)際海事組織有關(guān)規(guī)則在內(nèi)的現(xiàn)有國(guó)際法框架，通過全球、區(qū)域、多邊和雙邊機(jī)制應(yīng)對(duì)各類傳統(tǒng)與非傳統(tǒng)安全挑戰(zhàn)，構(gòu)建和維護(hù)公正、合理、有序的北極治理體系。對(duì)內(nèi)，中國(guó)堅(jiān)持依法規(guī)范和管理國(guó)內(nèi)北極事務(wù)和活動(dòng)，穩(wěn)步增強(qiáng)認(rèn)識(shí)、保護(hù)和利用北極的能力，積極參與北極事務(wù)國(guó)際合作。

To participate in the governance of the Arctic, China will participate in regulating and managing the affairs and activities relating to the Arctic on the basis of rules and mechanisms. Internationally, China is committed to the existing framework of international law including the UN Charter, UNCLOS, treaties on climate change and the environment, and relevant rules of the International Maritime Organization, and to addressing various traditional and non-traditional security threats through global, regional, multilateral and bilateral mechanisms, and to building and maintaining a just, reasonable and well-organized Arctic governance system. Domestically, China will regulate and manage Arctic-related affairs and activities within its jurisdiction in accordance with the law, steadily enhance its ability to understand, protect and develop the Arctic, and actively participate in international cooperation in Arctic affairs.