從BBNJ協定法制化進程分析協定所面臨之挑戰

Abstract

國家管轄範圍外的區域（ABNJ）作為地球主要生態系統之一，面臨過度捕撈、氣候變遷、海洋酸化和污染等多重威脅，其永續利用與保護至關重要。為因應這些挑戰，《聯合國海洋法公約下國家管轄範圍以外區域海洋生物多樣性保育與永續利用協定》（《BBNJ協定》）經歷數十年的談判後於2023年通過，旨在ABNJ促進海洋生物多樣性的保護與全球合作。然而，目前僅有15個國家批准協定，距離生效所需的60國批准門檻尚有差距，又其中多為開發中國家，反映出談判過程中仍存在根本性分歧。 本文首先回顧了自17世紀至今國際法中有關ABNJ概念的歷史沿革，隨後深入梳理BBNJ工作小組至第五屆政府間會議期間圍繞「一籃子議題」的談判進程及其主要爭議，最終聚焦於影響協定推進的核心分歧——「不削弱制度」以及「人類共同繼承財產原則」與「公海自由原則」之間的衝突。本文的分析結果認為，上開分歧為導致談判延宕及批准進度緩慢的關鍵因素，並可能在未來制度落實過程中持續影響協定的推進。尤其「不削弱制度」作為一項相對新穎的國際法概念，各國對此原則的理解和實施方式迥異，特別是在如何協調不同既有法律文書、框架與機構之間的管轄重疊與權責分配上形成了嚴重的法律與政治爭議。此外，儘管《BBNJ協定》鞏固了「人類共同繼承財產原則」在習慣國際法中的地位，然如何在該原則與「公海自由原則」之間取得平衡，並有效緩解長期存在的全球南北分歧，同時確保該原則核心價值的真正落實，仍是協定未來推進的關鍵挑戰。

Areas Beyond National Jurisdiction (ABNJ), as one of the Earth's primary ecosystems, face multiple threats, including overfishing, climate change, ocean acidification, and pollution, making their sustainable use and protection critically important. To address these challenges, The Agreement under the United Nations Convention on the Law of the Sea on the Conservation and Sustainable Use of Marine Biological Diversity of Areas beyond National Jurisdiction (BBNJ Agreement) was adopted in 2023 after decades of negotiations, aiming to promote the conservation of marine biodiversity and foster global cooperation in ABNJ. However, to date, only 15 countries have ratified the agreement, falling short of the 60 required for it to enter into force. Most of the ratifying countries are developing nations, reflecting the presence of fundamental disagreements during the negotiation process. This study first reviews the historical development of the ABNJ concept in international law from the 17th century to the present and systematically examines the negotiation process and major disputes concerning the "package deal" issues discussed from the BBNJ Working Group to the 5th session of the intergovernmental conference on the BBNJ. This study focuses on what it identifies as the core divergences impeding the progress of the agreement—namely, the "not undermine" principle and the conflict between the principles of “the common heritage of humankind" and the "freedom of the high seas." The analysis concludes that these divergences are key factors contributing to the delays in negotiations and the slow pace of ratification, and they are likely to continue affecting the implementation of the agreement in the future. Particularly, the "not undermine" principle, as a relatively novel concept in international law, has led to significant legal and political disputes due to differing interpretations and implementations by various participating countries, especially regarding how to coordinate overlapping jurisdictions and responsibilities across existing legal instruments, frameworks or relevant global, regional, subregional or sectoral bodies (IFBs). Moreover, while the BBNJ Agreement has reinforced the status of the "common heritage of humankind" principle in customary international law, achieving a balance between this principle and the "freedom of the high seas", as well as effectively addressing the long-standing North-South divide, remains a critical challenge for the agreement's future progress. Ensuring the realization of the core values of the "common heritage of humankind" principle will also be essential.