海底電纜的安全化理論研究 ：以臺琉海纜與臺馬海纜為例

Abstract

本論文探討我國海底電纜建設如何受地緣政治與安全意識影響，聚焦分析兩個案例：1970年代末期臺灣與日本合作鋪設的臺琉海纜，以及2023年2月臺馬海纜斷裂事件。透過運用哥本哈根學派提出的「安全化理論」作為分析框架，試圖釐清我國在不同時期，相關部會如何透過特定行為者的論述與政策，將海底電纜建設與維運議題「安全化」，並探討其背後的動機與影響。 在臺琉海纜案例中，面對1970年代末期複雜的國際情勢，我國電信主管機關「交通部電信總局」扮演了關鍵的安全化推手角色。電信總局透過與美方簽訂備忘錄等方式，對日本施加壓力，促使其同意共同建設臺琉海纜，突破我國當時面臨的外交困境。透過適時將海纜議題安全化，我方成功爭取到關鍵盟友支持，化解了來自國際環境的政治風險。 相較之下，2023年臺馬海纜事件呈現出不同的安全化圖景。數位發展部試圖藉由強調海纜遭「中國蓄意破壞」，將此次事件安全化，藉此為後續建設爭取預算，並彰顯自身存在的必要性。然而，在兩岸關係日益緊張的背景下，我方主導的安全化進程受到諸多掣肘，未能完全實現預設目標。 本文認為，海纜議題的安全化反映了臺灣所處地緣政治環境的結構性變遷，同時也受到美國態度、各界行為者博弈、我方因應思路等因素影響。這意味著，圍繞海纜展開的安全化競逐，將是我國未來亟需面對的長期課題。

This thesis examines how Taiwan's submarine cable construction is influenced by geopolitics and security awareness, focusing on two case studies: the Taiwan-Okinawa cable (OKITAI) jointly laid by Taiwan and Japan in the late 1970s, and the breakage of the Taiwan-Matsu cable in February 2023. By employing the "securitization theory" proposed by the Copenhagen School as an analytical framework, this study aims to clarify how relevant government agencies in Taiwan have "securitized" the construction and maintenance of submarine cables during different periods through the discourse and policies of specific actors, and explores the underlying motivations and impacts. In the case of the OKITAI Cable, faced with the complex international situation in the late 1970s, Taiwan's telecommunications authority, the "Directorate General of Telecommunications, MOTC" played a pivotal role as a securitizing actor. By signing a memorandum with the United States, the MOTC pressured Japan to agree to jointly construct the OKITAI Cable, overcoming Taiwan's diplomatic predicament at the time. Through timely securitization of the submarine cable issue, Taiwan successfully garnered support from key allies and mitigated political risks stemming from the international environment. In contrast, the 2023 Taiwan-Matsu cable breakage incident presents a different securitization landscape. The Ministry of Digital Affairs attempted to securitize the event by emphasizing the "deliberate sabotage by China," aiming to secure budgets for subsequent construction and demonstrate its own necessity. However, amidst the increasingly tense cross-strait relations, Taiwan's securitization efforts encountered numerous constraints, failing to fully achieve the intended objectives. This study argues that the securitization of the submarine cable issue reflects the structural changes in Taiwan's geopolitical environment, while also being influenced by factors such as the United States' stance, the interplay among various actors, and Taiwan's response strategies. This implies that the securitization competition surrounding submarine cables will be a long-term challenge that Taiwan urgently needs to confront in the future.