美国参与“冰上丝绸之路”建设:动力、制约与启示
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摘要
美国在北极地区拥有广泛多元的国家利益,是影响"冰上丝绸之路"建设的关键沿线国家。"冰上丝绸之路"倡议以"尊重、合作、共赢和可持续"为核心原则,其关键在于加强区域间多层次合作与共赢,最终实现北极地区可持续发展的目标。这与特朗普政府加强北极资源开发、改善阿拉斯加州基础设施以及推动北极航道利用的利益诉求相契合,是美国参与"冰上丝绸之路"建设的动力条件。不过,在国内利益集团、美俄关系以及破冰船等问题上,美国参与"冰上丝绸之路"建设还面临诸多现实制约。在特朗普政府参与"冰上丝绸之路"建设存在诸多不确定因素的情况下,中国应当积极展示"冰上丝绸之路"建设的积极意义,以科技合作为突破口,将资源开发和基础设施建设作为合作重点,妥善应对尚存争议的开发领域,推动美国建设性参与"冰上丝绸之路"合作。
The United States has a wide range of diverse national interests in the Arctic region and is also a key country to affect the construction of the "Polar Silk Road". The "Polar Silk Road" initiative takes "respect, cooperation, win-win and sustainability" as its core principles, and aims at strengthening multi-level cooperation among regions and ultimately achieving the goal of sustainable development in the Arctic region. This is in line with Trump administration's efforts to facilitate Arctic resources development, improve Alaska's infrastructure, and promote the use of Arctic waterways, which is a driving force for it to participate in the cooperation of the project. However, the issues of domestic interest groups, US-Russia relations and icebreakers in the country can constrain it in practice. Under such circumstances, China should actively demonstrate the positive significance of the "Polar Silk Road" construction by using science and technology cooperation as a breakthrough, developing resources and infrastructure as a key point of cooperation, and properly coping with the controversial development areas. Only in this way, can we promote US to participate constructively in the "Polar Silk Road" initiative.
The United States has a wide range of diverse national interests in the Arctic region and is also a key country to affect the construction of the "Polar Silk Road". The "Polar Silk Road" initiative takes "respect, cooperation, win-win and sustainability" as its core principles, and aims at strengthening multi-level cooperation among regions and ultimately achieving the goal of sustainable development in the Arctic region. This is in line with Trump administration's efforts to facilitate Arctic resources development, improve Alaska's infrastructure, and promote the use of Arctic waterways, which is a driving force for it to participate in the cooperation of the project. However, the issues of domestic interest groups, US-Russia relations and icebreakers in the country can constrain it in practice. Under such circumstances, China should actively demonstrate the positive significance of the "Polar Silk Road" construction by using science and technology cooperation as a breakthrough, developing resources and infrastructure as a key point of cooperation, and properly coping with the controversial development areas. Only in this way, can we promote US to participate constructively in the "Polar Silk Road" initiative.
引文
[1]国务院新闻办公室网站.中国的北极政策(全文)[EB/OL].http://www.scio.gov.cn/zfbps/32832/Document/1618203/1618203.htm.
[2]韩雪文.白令海峡对中俄“冰上丝绸之路”建设的意义探析[J].河北工程大学学报(社会科学版),2019,(3).
[3]National Security Strategy[EB/OL].https://www.whitehouse.gov/wp-content/uploads/2017/12/NSS-Final-12-18-2017-0905-2.pdf.
[4]The Senate's Sly Plan to Begin Drilling in Arctic Refuge[EB/OL].https://www.mensjournal.com/adventure/the-senates-sly-plan-to-begin-drilling-in-arctic-refuge-w510202.
[5]张涛,吴林强,徐晶晶,蒋成竹.基于“冰上丝绸之路”的我国油气能源战略[J].海洋开发与管理,2019,(2).
[6]孙凯,杨松霖.美国北极事务中阿拉斯加州与联邦政府的合作与博弈[J].国际论坛,2016,(4).
[7]Alaska hatches plan for vast road network across the Arctic[EB/OL].https://www.alaskapublic.org/2017/09/07/alaska-hatches-plan-for-vast-road-network-across-the-arctic/.
[8]Resolution pushes for Arctic port,Coast Guard base[EB/OL].http://www.thearcticsounder.com/article/1810resolution_pushes_for_arctic_port_coast_guard.
[9]北极问题研究编写组.北极问题研究[M].北京:海洋出版社,2011.
[10]陆钢.“冰上丝绸之路”的商用价值及其技术支撑[J].人民论坛·学术前沿,2018,(11).
[11]李振福.“冰上丝绸之路”与北极航线开发[J].人民论坛·学术前沿,2018,(11).
[12]Finland Fancies Future “Arctic Link” to China via Northern Sea Route[EB/OL].https://sputniknews.com/europe/201803131062480342-finland-norway-arctic-link/.
[13]Subsea Cables in a Thawing Arctic[EB/OL].https://www.maritime-executive.com/editorials/subsea-cables-in-a-thawing-arctic#gs.DsuP7Eg.
[14]Japan's new sea policy to include issues of North Korean missiles,Arctic shipping lanes[EB/OL].http://www.straitstimes.com/asia/east-asia/japans-new-sea-policy-to-include-issues-of-north-korean-missiles-arctic-shipping.
[15]Alison McFarland.Arctic Options:Why America Should Invest in a Future with China[EB/OL].https://www.stimson.org/content/arctic-options-why-america-should-invest-future-china.
[16]夏立平,谢茜.北极区域合作机制与“冰上丝绸之路”[J].同济大学学报(社会科学版),2018,(4).
[17]阮建平.国际政治经济学视角下的“冰上丝绸之路”倡议[J].海洋开发与管理,2017,(11).
[18]Alaska files motion to join Trump in lawsuit over Arctic drilling[EB/OL].https://www.adn.com/alaska-news/2017/09/01/alaska-files-motion-to-join-trump-in-lawsuit-over-arctic-drilling/.
[19]RELEASE:Trump Administration's Offshore Oil Lease Sale Gets Tepid Response,Devalues Public Resources,CAP Column Says[EB/OL].https://www.americanprogress.org/press/release/2018/03/26/448419/release-trump-administrations-offshore-oil-lease-sale-gets-tepid-response-devalues-public-resources-cap-column-says/.
[20]Alaska Senator Denounced for “Deplorable” Attempt to Force Drilling in Arctic Wildlife Refuge[EB/OL].https://www.commondreams.org/news/2017/11/09/alaska-senator-denounced-deplorable-attempt-force-drilling-arctic-wildlife-refuge.
[21]Russian navy has fired hundreds of rockets in northern fleet's Arctic drills[EB/OL].http://www.newsweek.com/russian-navy-has-fired-hundreds-rockets-northern-fleets-arctic-drills-770632.
[22]Coldest war ever?US arming icebreakers with missiles for Arctic showdown with Russia[EB/OL].https://www.dailystar.co.uk/news/world-news/675493/US-Russia-Arctic-War-Icebreakers-Cruise-Missiles-Gas-Oil-Resource-World-3-Nuclear-Soldiers.
[23]Britain's nuclear submarine breaks through Arctic ice for first time in decade amid Russia tensions[EB/OL].https://www.msn.com/en-gb/news/uknews/britains-nuclear-submarine-breaks-through-arctic-ice-for-first-time-in-decade-amid-russia-tensions/ar-BBKhKMa.
[24]赵隆.共建“冰上丝绸之路”的背景、制约因素与可行路径[J].俄罗斯东欧中亚研究,2018,(2).
[25]钱宗旗.俄罗斯北极战略与“冰上丝绸之路” [M].北京:时事出版社,2018.
[26]Jack Durkee.China:The New “Near-Arctic State”[EB/OL].https://www.wilsoncenter.org/article/china-the-new-near-arctic-state.
[27]Alice Hill.Arctic Security Poses Icy Chess Game with Russia,China[EB/OL].https://thehill.com/blogs/pundits-blog/energy-environment/334253-arctic-security-poses-icy-chess-game-with-russia-china.
[28]The head of the Coast Guard says Russia has “all the pieces on the chessboard” in the Arctic — but the US has “only got a couple of pawns”[EB/OL].http://www.businessinsider.com/russia-arctic-moves-eerily-familiar-coast-guard-commandant-2018-1.
[29]James Di Pane.The Coast Guard Needs Six New Icebreakers to Protect U.S.Interests in the Arctic and Antarctic[EB/OL].https://www.heritage.org/sites/default/files/2018-04/IB4834_0.pdf.
[30]刘芳明,刘大海,连晨超.北极海岸警卫队论坛机制和“冰上丝绸之路”的安全合作[J].海洋开发与管理,2018,(6).
[31]孙凯.特朗普政府的北极政策走向与中美北极合作[J].南京政治学院学报,2017,(6).
[32]薛桂芳.“冰上丝绸之路”新战略及其实施路径[J].人民论坛·学术前沿,2018,(21).
[33]杨松霖.中美北极科技合作:重要意义与推进理路——基于“人类命运共同体理念”的分析[J].大连海事大学学报(社会科学版),2018,(5).
[34]杨松霖.特朗普政府的北极政策:内外环境与发展走向[J].亚太安全与海洋研究,2018,(1).
(1)美国政府颁布的多份北极政策文件对北极地区的国家利益进行了界定和说明。截至目前,美国联邦政府共颁布了5份北极政策文件,分别为:1971年尼克松政府颁布的《第144号国家安全政策备忘录》;1983年里根政府颁布的《90号国家安全决策指令》;1994年克林顿政府颁布的《26号总统决策指令》;2009年小布什政府颁布的《第66号国家安全总统指令/第25号国土安全总统指令》;2013年奥巴马政府颁布的《北极地区的国家战略》。
(2)该方案的总花费超过1.5万亿美元,其中联邦政府仅出资2000亿美元,方案计划将1000亿美元用作激励基金,鼓励地方政府和私营部门投资。
(3)目前广受关注的北极航道主要包括两条:一是西起摩尔曼斯克东到符拉迪沃斯托克的东北航线,这是东亚与西欧之间最短的海上航线;二是西起白令海峡,向东沿美国阿拉斯加北部离岸海域,穿过加拿大北极群岛,直到戴维斯海峡的西北航线。“冰上丝绸之路”建设经过的“北极航道”,西起西北欧北部海域,东到符拉迪沃斯托克,途经巴伦支海、喀拉海、拉普捷夫海、新西伯利亚海和白令海峡,是穿越北极圈,连接北美、东亚和西欧三大经济中心的海运路线。
(4)“北极走廊”通过俄罗斯沿岸的北方海航线促进斯堪的纳维亚与中国的贸易联系。通过赫尔辛基—塔林(Helsinki-Tallinn)隧道和波罗的海铁路与欧洲铁路网相连,被视为全球运输系统的一部分。
(5)笔者检索了伍德罗·威尔逊国际学者中心、美国战略与国际研究中心、兰德公司、卡内基国际和平基金会、胡佛研究所、史汀生中心等多家美国主流智库官网上发布的有关“冰上丝绸之路”倡议的文献、报告、评论等数据资料。尽管存在部分理性声音,但多数学者仍然对中国提出“冰上丝绸之路”倡议的动机表示质疑,并对未来可能给美国带来的影响感到担忧。
[2]韩雪文.白令海峡对中俄“冰上丝绸之路”建设的意义探析[J].河北工程大学学报(社会科学版),2019,(3).
[3]National Security Strategy[EB/OL].https://www.whitehouse.gov/wp-content/uploads/2017/12/NSS-Final-12-18-2017-0905-2.pdf.
[4]The Senate's Sly Plan to Begin Drilling in Arctic Refuge[EB/OL].https://www.mensjournal.com/adventure/the-senates-sly-plan-to-begin-drilling-in-arctic-refuge-w510202.
[5]张涛,吴林强,徐晶晶,蒋成竹.基于“冰上丝绸之路”的我国油气能源战略[J].海洋开发与管理,2019,(2).
[6]孙凯,杨松霖.美国北极事务中阿拉斯加州与联邦政府的合作与博弈[J].国际论坛,2016,(4).
[7]Alaska hatches plan for vast road network across the Arctic[EB/OL].https://www.alaskapublic.org/2017/09/07/alaska-hatches-plan-for-vast-road-network-across-the-arctic/.
[8]Resolution pushes for Arctic port,Coast Guard base[EB/OL].http://www.thearcticsounder.com/article/1810resolution_pushes_for_arctic_port_coast_guard.
[9]北极问题研究编写组.北极问题研究[M].北京:海洋出版社,2011.
[10]陆钢.“冰上丝绸之路”的商用价值及其技术支撑[J].人民论坛·学术前沿,2018,(11).
[11]李振福.“冰上丝绸之路”与北极航线开发[J].人民论坛·学术前沿,2018,(11).
[12]Finland Fancies Future “Arctic Link” to China via Northern Sea Route[EB/OL].https://sputniknews.com/europe/201803131062480342-finland-norway-arctic-link/.
[13]Subsea Cables in a Thawing Arctic[EB/OL].https://www.maritime-executive.com/editorials/subsea-cables-in-a-thawing-arctic#gs.DsuP7Eg.
[14]Japan's new sea policy to include issues of North Korean missiles,Arctic shipping lanes[EB/OL].http://www.straitstimes.com/asia/east-asia/japans-new-sea-policy-to-include-issues-of-north-korean-missiles-arctic-shipping.
[15]Alison McFarland.Arctic Options:Why America Should Invest in a Future with China[EB/OL].https://www.stimson.org/content/arctic-options-why-america-should-invest-future-china.
[16]夏立平,谢茜.北极区域合作机制与“冰上丝绸之路”[J].同济大学学报(社会科学版),2018,(4).
[17]阮建平.国际政治经济学视角下的“冰上丝绸之路”倡议[J].海洋开发与管理,2017,(11).
[18]Alaska files motion to join Trump in lawsuit over Arctic drilling[EB/OL].https://www.adn.com/alaska-news/2017/09/01/alaska-files-motion-to-join-trump-in-lawsuit-over-arctic-drilling/.
[19]RELEASE:Trump Administration's Offshore Oil Lease Sale Gets Tepid Response,Devalues Public Resources,CAP Column Says[EB/OL].https://www.americanprogress.org/press/release/2018/03/26/448419/release-trump-administrations-offshore-oil-lease-sale-gets-tepid-response-devalues-public-resources-cap-column-says/.
[20]Alaska Senator Denounced for “Deplorable” Attempt to Force Drilling in Arctic Wildlife Refuge[EB/OL].https://www.commondreams.org/news/2017/11/09/alaska-senator-denounced-deplorable-attempt-force-drilling-arctic-wildlife-refuge.
[21]Russian navy has fired hundreds of rockets in northern fleet's Arctic drills[EB/OL].http://www.newsweek.com/russian-navy-has-fired-hundreds-rockets-northern-fleets-arctic-drills-770632.
[22]Coldest war ever?US arming icebreakers with missiles for Arctic showdown with Russia[EB/OL].https://www.dailystar.co.uk/news/world-news/675493/US-Russia-Arctic-War-Icebreakers-Cruise-Missiles-Gas-Oil-Resource-World-3-Nuclear-Soldiers.
[23]Britain's nuclear submarine breaks through Arctic ice for first time in decade amid Russia tensions[EB/OL].https://www.msn.com/en-gb/news/uknews/britains-nuclear-submarine-breaks-through-arctic-ice-for-first-time-in-decade-amid-russia-tensions/ar-BBKhKMa.
[24]赵隆.共建“冰上丝绸之路”的背景、制约因素与可行路径[J].俄罗斯东欧中亚研究,2018,(2).
[25]钱宗旗.俄罗斯北极战略与“冰上丝绸之路” [M].北京:时事出版社,2018.
[26]Jack Durkee.China:The New “Near-Arctic State”[EB/OL].https://www.wilsoncenter.org/article/china-the-new-near-arctic-state.
[27]Alice Hill.Arctic Security Poses Icy Chess Game with Russia,China[EB/OL].https://thehill.com/blogs/pundits-blog/energy-environment/334253-arctic-security-poses-icy-chess-game-with-russia-china.
[28]The head of the Coast Guard says Russia has “all the pieces on the chessboard” in the Arctic — but the US has “only got a couple of pawns”[EB/OL].http://www.businessinsider.com/russia-arctic-moves-eerily-familiar-coast-guard-commandant-2018-1.
[29]James Di Pane.The Coast Guard Needs Six New Icebreakers to Protect U.S.Interests in the Arctic and Antarctic[EB/OL].https://www.heritage.org/sites/default/files/2018-04/IB4834_0.pdf.
[30]刘芳明,刘大海,连晨超.北极海岸警卫队论坛机制和“冰上丝绸之路”的安全合作[J].海洋开发与管理,2018,(6).
[31]孙凯.特朗普政府的北极政策走向与中美北极合作[J].南京政治学院学报,2017,(6).
[32]薛桂芳.“冰上丝绸之路”新战略及其实施路径[J].人民论坛·学术前沿,2018,(21).
[33]杨松霖.中美北极科技合作:重要意义与推进理路——基于“人类命运共同体理念”的分析[J].大连海事大学学报(社会科学版),2018,(5).
[34]杨松霖.特朗普政府的北极政策:内外环境与发展走向[J].亚太安全与海洋研究,2018,(1).
(1)美国政府颁布的多份北极政策文件对北极地区的国家利益进行了界定和说明。截至目前,美国联邦政府共颁布了5份北极政策文件,分别为:1971年尼克松政府颁布的《第144号国家安全政策备忘录》;1983年里根政府颁布的《90号国家安全决策指令》;1994年克林顿政府颁布的《26号总统决策指令》;2009年小布什政府颁布的《第66号国家安全总统指令/第25号国土安全总统指令》;2013年奥巴马政府颁布的《北极地区的国家战略》。
(2)该方案的总花费超过1.5万亿美元,其中联邦政府仅出资2000亿美元,方案计划将1000亿美元用作激励基金,鼓励地方政府和私营部门投资。
(3)目前广受关注的北极航道主要包括两条:一是西起摩尔曼斯克东到符拉迪沃斯托克的东北航线,这是东亚与西欧之间最短的海上航线;二是西起白令海峡,向东沿美国阿拉斯加北部离岸海域,穿过加拿大北极群岛,直到戴维斯海峡的西北航线。“冰上丝绸之路”建设经过的“北极航道”,西起西北欧北部海域,东到符拉迪沃斯托克,途经巴伦支海、喀拉海、拉普捷夫海、新西伯利亚海和白令海峡,是穿越北极圈,连接北美、东亚和西欧三大经济中心的海运路线。
(4)“北极走廊”通过俄罗斯沿岸的北方海航线促进斯堪的纳维亚与中国的贸易联系。通过赫尔辛基—塔林(Helsinki-Tallinn)隧道和波罗的海铁路与欧洲铁路网相连,被视为全球运输系统的一部分。
(5)笔者检索了伍德罗·威尔逊国际学者中心、美国战略与国际研究中心、兰德公司、卡内基国际和平基金会、胡佛研究所、史汀生中心等多家美国主流智库官网上发布的有关“冰上丝绸之路”倡议的文献、报告、评论等数据资料。尽管存在部分理性声音,但多数学者仍然对中国提出“冰上丝绸之路”倡议的动机表示质疑,并对未来可能给美国带来的影响感到担忧。
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