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Vũ Hải Đăng, Mạng lưới song phương các khu bảo tồn giữa Việt Nam và Trung Quốc: Giải pháp thay thế c

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Chủ trương của bài viết[1] này là thành lập một mạng lưới song phương bảo tồn biển giữa Trung Quốc và Việt Nam ở khu vực Tây Bắc của Biển Đông, như một giải pháp thay thế cho lệnh cấm đánh bắt cá hàng năm mà Trung Quốc đang thực hiện tại Biển Đông. Một giải pháp như vậy nếu như chính thức được thực hiện, nó không chỉ giúp bảo tồn nguồn sinh vật biển, mà còn đóng góp vào việc thúc đẩy mối quan hệ song phương Việt Nam và Trung Quốc, cũng như giúp giảm căng thẳng khu vực này.

Từ năm 1999, Trung Quốc đã ban hành lệnh cấm đánh bắt cá hàng năm trong vòng hai hoặc ba tháng mùa hè ở khu vực Tây Bắc của Biển Đông. Năm nay (2011), lệnh cấm này đã được áp dụng từ ngày 16 tháng 5 đến ngày 1 tháng 8, từ 12 ° vĩ độ Bắc đến phía Bắc và 113 ° kinh độ Đông về phía Tây.[2] Bất kỳ tàu đánh cá nào đi vào khu vực này trong thời gian cấm phải nộp tiền phạt, bị tịch thu hết cá và thiết bị.[3] Theo truyền thông và các học giả Trung Quốc, lệnh cấm đánh bắt cá này cần thiết để bảo vệ sự bền vững của đời sống biển trong khu vực, ngăn chặn việc đánh bắt quá mức[4] và bắt đầu có kết quả tích cực.[5] Tuy nhiên, các nhà phê bình, kể cả từ phía Trung Quốc, đang nghi ngờ hiệu quả của biện pháp này. Nhiều loài cá có tính thương mại cao không sinh sản vào thời điểm có lệnh cấm đánh bắt cá. Hơn nữa, sau một thời gian dài tạm dừng do lệnh cấm, hoạt động đánh bắt cá sẽ đa dạng hơn, gây ra nhiều nguy cơ hơn làm suy giảm nguồn dự trữ hải sản.[6]

Một vấn đề nghiêm trọng hơn là quy định này được thi hành đối với ngư dân Việt Nam đánh cá trong khu vực mà Việt Nam cũng có tuyên bố chủ quyền. Đáp trả lại lệnh cấm đánh bắt cá này, các cơ quan hữu quan của Việt Nam, như Bộ Ngoại giao và Hiệp hội Thủy sản Việt Nam, đều lên tiếng phản đối.[7] Đặc biệt, Người phát ngôn của Bộ Ngoại giao Việt Nam tuyên bố rằng “Việc Trung Quốc thực hiện lệnh cấm đánh bắt cá đơn phương trên Biển Đông[8] là hành vi vi phạm chủ quyền của Việt Nam tại quần đảo Hoàng Sa, quyền chủ quyền và quyền tài phán tại vùng đặc quyền kinh tế và thềm lục địa của Việt Nam, vi phạm Tuyên bố về cách ứng xử của các bên ở biển Đông (DOC), làm phức tạp thêm tình hình ở Biển Đông”.[9] Lệnh cấm này cũng bị thách thức ở mức độ tương tự từ những ngư dân Việt Nam, những người vẫn tiếp tục đánh bắt xa bờ trong thời gian lệnh cấm này có hiệu lực.[10] Kết quả là họ bị các lực lượng chấp pháp biển Trung Quốc bắt bớ, giam giữ, đánh đập, tịch thu hết cá và các thiết bị đánh bắt.[11]

Hình 1. Phạm vi lãnh thổ trong Lệnh cấm đánh bắt cá của Trung Quốc năm 2011

Do tác giả vẽ, có sử dụng phần mềm ArcGIS, 2011[12]

Trong thực tế, vấn đề bảo tồn và quản lý các nguồn sinh vật biển trong một khu vực tranh chấp có thể được giải quyết bằng cách các quốc gia ven biển có liên quan ký một thỏa thuận về nghề cá. Ví dụ như Công ước giữa Canada và Hoa Kỳ năm 1953 (sau này được sửa đổi bởi Nghị định thư năm 1979),[13] Hiệp định giữa Thụy Điển và Liên Xô năm 1977,[14] và Hiệp định giữa Nhật Bản và Nga năm 1998.[15] Điều 74 (3) và 83 (3) của Công ước Liên hợp quốc về Luật biển yêu cầu các quốc gia, trong khi chờ đợi một thỏa thuận phân định vùng đặc quyền kinh tế và thềm lục địa, “cố gắng tham gia vào các sắp xếp tạm thời, trong giai đoạn chuyển tiếp này, không gây hại hoặc cản trở việc đạt thỏa thuận cuối cùng”.[16]

Tuy nhiên, rất khó đạt được một thỏa thuận nghề cá cho tất cả các khu vực nằm ở phần Tây Bắc của Biển Đông, mà Việt Nam và Trung Quốc đưa ra các tuyên bố chồng chéo, bởi không có sự nhất trí về trạng thái tranh chấp trên một số địa điểm. Ví dụ, Trung Quốc cho rằng “không có gì để thương lượng” về quần đảo Hoàng Sa,[17] còn Việt Nam thì tuyên bố rằng vùng nước nằm trong vùng đặc quyền kinh tế và thềm lục địa, ít nhất là ở phần Tây Bắc của Biển Đông không phải là khu vực tranh chấp.[18]

Chủ trương của bài viết này là thành lập một mạng lưới song phương bảo tồn biển giữa Trung Quốc và Việt Nam ở khu vực Tây Bắc của Biển Đông, như một giải pháp tiềm năng cho tình thế tiến thoái lưỡng nan này. Tác giả lập luận rằng, để bảo tồn các nguồn tài nguyên sinh vật biển ở phần Tây Bắc của Biển Đông và duy trì mối quan hệ tốt đẹp giữa hai nước, thay vì thực hiện các biện pháp đơn phương, Trung Quốc và Việt Nam có thể hợp tác và hướng tới thiết lập một mạng lưới bảo tồn biển song phương. Chắc chắn một mạng lưới bảo tồn biển song phương giữa Việt Nam và Trung Quốc chỉ là một giải pháp cho tình thế tiến thoái lưỡng nan, nhưng xét trong hoàn cảnh hiện tại, nó có thể là một trong những giải pháp rất hiệu quả.

Bài viết đưa ra một số thông tin cơ bản liên quan đến khu bảo tồn, khu bảo tồn biển và mạng lưới các khu bảo tồn biển song phương, để chỉ ra các ưu thế hơn hẳn về sinh thái, pháp lý và chính trị của một mạng lưới các khu bảo tồn biển song phương so với lệnh cấm đánh bắt cá đơn phương. Bài viết giải thích cách các thể chế quốc tế và khu vực mà cả Việt Nam và Trung Quốc đều đang tham gia khuyến khích phát triển mạng lưới các khu bảo tồn biển song phương như một giải pháp cho bảo tồn biển. Tiếp theo, bài viết nghiên cứu trường hợp cụ thể về quá trình thiết lập một mạng lưới các khu bảo tồn biển tại vùng sinh thái biển Sulu-Sulawesi. Cuối cùng, bài viết nêu ra các triển vọng về cách thực hiện một mạng lưới các khu bảo tồn biển song phương giữa Việt Nam và Trung Quốc, đặc biệt lưu ý đến các tranh chấp hiện tại giữa hai quốc gia trong khu vực Tây Bắc Biển Đông.

1. Thông tin nền về mạng lưới các khu bảo tồn biển song phương

Phần này giải thích khái niệm về mạng lưới các khu bảo tồn biển song phương và sự thành lập mạng lưới các khu bảo tồn biển song phương hoặc cấp khu vực. Ví dụ, trong bài đưa ra các định nghĩa tương ứng như khu vực bảo tồn, hoặc khu bảo tồn biển, khu bảo tồn biển xuyên biên giới và mạng lưới các khu bảo tồn biển; các chức năng khác nhau của các khu vực, và chỉ ra lợi thế của một mạng lưới các khu bảo tồn biển song phương so với một lệnh cấm đánh bắt cá đơn phương trong một vùng biển thông thường. Phần này cũng nêu ra các tiêu chí, các bước cần thiết và các yếu tố thiết yếu cho việc thành lập và quản lý thành công một mạng lưới các khu bảo tồn biển, đặc biệt ở cấp khu vực.

Các định nghĩa

Mục nhỏ này đưa ra một số khái niệm tương ứng được sử dụng trong bài báo, như khu bảo tồn biển, mạng lưới các khu bảo tồn biển và khu bảo tồn xuyên biên giới:

Định nghĩa phổ biến nhất về khu bảo tồn biển là của Hiệp hội Quốc tế về Bảo tồn thiên nhiên. Theo đó, một khu vực được bảo tồn nói chung là “một không gian địa lý được xác định rõ ràng, được công nhận, chuyên dụng và được quản lý, bằng các công cụ pháp lý hoặc các biện pháp có hiệu quả khác, nhằm bảo tồn thiên nhiên về lâu dài cùng với các dịch vụ sinh thái và các giá trị văn hóa”.[19] Định nghĩa này cũng áp dụng đối với khu bảo tồn biển.[20] Theo định nghĩa này, các khu vực quản lý nghề cá như khu cấm đánh bắt, khu bảo vệ nghề cá chỉ có thể đủ điều kiện trở thành Khu bảo tồn biển nếu mục đích chính là bảo tồn đa dạng sinh học chứ không phải quản lý nghề cá.[21] Quan điểm này bị chỉ trích vì đánh bắt cá bền vững cũng góp phần vào việc bảo vệ các nguồn tài nguyên biển, đặc biệt là các loài có tính thương mại. Bên cạnh đó, không có nhiều khác biệt giữa Khu bảo tồn biển cấm đánh cá và một khu hạn chế đánh bắt hoặc khu bảo tồn cá.[22] Trong khuôn khổ của bài này, một khu dự trữ đánh bắt được thành lập cho mục đích đánh bắt cá bền vững được coi là một Khu bảo tồn biển.

Một mạng lưới hoặc hệ thống khu bảo tồn biển được định nghĩa là “một tập hợp các khu bảo tồn biển riêng biệt được vận hành theo cách hợp tác và phối hợp lẫn nhau, ở quy mô không gian khác nhau, với nhiều mức độ bảo vệ, để thực hiện các mục tiêu sinh thái một cách hiệu quả hơn và toàn diện hơn so với các khu bảo tồn đơn lẻ”.[23] Không phải bất kỳ tập hợp các khu bảo tồn biển riêng biệt nào cũng có thể tạo thành một mạng lưới, mà chỉ khi được đặt trong môi trường sống then chốt, có chứa các yếu tố của một môi trường sống đặc thù hoặc các phần khác nhau của các môi trường sống quan trọng, và được kết nối với nhau bởi sự di chuyển của loài vật.[24]

Một khu bảo tồn xuyên biên giới là “một khu đất và/hoặc biển nằm giữa một hoặc nhiều biên giới giữa các quốc gia,[25] các tỉnh và khu vực thuộc quốc gia, khu vực tự trị và/hoặc các khu vực nằm ngoài giới hạn chủ quyền quốc gia hoặc quyền tài phán, có các bộ phận cấu thành đặc biệt dành riêng cho việc bảo vệ và duy trì đa dạng sinh học, các nguồn tài nguyên thiên nhiên và tài nguyên văn hóa, được quản lý bằng cách hợp tác qua các công cụ pháp lý hoặc các biện pháp có hiệu quả khác”.[26] Khi một khu bảo tồn xuyên biên giới được sử dụng không chỉ cho mục đích bảo vệ môi trường mà còn để thúc đẩy hòa bình, nó được gọi là một công viên vì hòa bình hoặc công viên hòa bình.[27]

Cần lưu ý rằng, dường như có sự nhầm lẫn giữa mạng lưới các khu bảo tồn, mạng lưới các khu bảo tồn xuyên biên giới và khu bảo tồn xuyên biên giới. Ví dụ, đôi khi có thể dùng khu bảo tồn xuyên biên giới để nói về một mạng lưới hoặc một nhóm các khu bảo tồn được thành lập ở khu vực biên giới và nằm ngang biên giới.[28] Bên cạnh đó, một mạng lưới các khu bảo tồn xuyên biên giới có thể được nhắc đến như một mạng lưới rộng lớn các khu bảo tồn trên lãnh thổ nhiều hơn một quốc gia (không chỉ giới hạn trong phạm vi biên giới của họ). Để tránh nhầm lẫn, bài viết này sử dụng thuật ngữ “mạng lưới các khu bảo tồn biển xuyên biên giới” để chỉ một mạng lưới các khu bảo tồn được thành lập ở khu vực biên giới và nằm ngang biên giới, trong khi một mạng lưới bảo tồn cấp khu vực hoặc song phương là một mạng lưới bao trùm các vùng lãnh thổ của nhiều quốc gia nhưng không giới hạn ở khu vực biên giới.

Đọc toàn bộ bản dịch tại đây

Vũ Hải Đăng, Nghiên cứu sinh Tiến sĩ về Luật Môi trường Biển, Trường Luật Schulich, Đại học Dalhousie, Canada

Bản gốc tiếng Anh: “A Bilateral Network of Marine Protected Areas between Vietnam and China: An Alternative to the Chinese Unilateral Fishing Ban in the South China Sea?”

Bài tham luận tại Hội thảo Khoa học Quốc tế lần thứ ba: Biển Đông: Hợp tác vì An ninh và Phát triển trong Khu vực do Học viện Ngoại giao và Hội Luật gia đồng tổ chức tại Hà Nội từ 4-5/11/2011.



[1] Tác giả xin cảm ơn Giáo sư David Vander Zwaag và ông Nguyễn Đăng Thắng về những ý kiến quan trọng và gợi ý hữu ích cho bài viết này. Cũng đặc biệt cảm ơn Jennifer Strang, Raymond Jahncke và Maxime Lapierre của Trung tâm GIS Dalhousie về sự giúp đỡ quý báu trong việc vẽ tất cả các bản đồ trong bài báo.

[2] Nguyễn Đăng Thắng, “Fishing Ban in the South China Sea: In quest for an alterntạiive solution” [dịch từ tiếng Việt: Lệnh cấm đánh cá ở Biển sĐông: Đi tìm một giải pháp khác”] 2011 8:280 Sttạie and Law Review [dịch từ tiếng Việt: Tạp chí Nhà nước và Pháp luật 76.

[3] “South China fishing ban” (May 17th 2011) CNC World, online: CNC World http://www.cncworld.tv/news/v_show/15019_South_China_fishing_ban.shtml, truy cập ngày 26 tháng bảy 2011.

[4] Sun Wei, “South China Sea Fishing Ban Indisputable” (16 June 2009) The Global Times, online: The Global Times <http://china.globaltimes.cn/editor-picks/2011-04/435503.html>, truy cập 26 Tháng Bảy, 2011.

[5] Zhen Sun, “South China Sea: Reducing the China-Vietnam tension” (August 8th 2011) RSIS Commentaries No.117/2011.

[6] Nguyễn Đăng Thắng, xem bên trên, chú thích 2 và GuifangXue, China and Interntạiional Fisheries Law and Policy (Leiden: MartinusNijhoff Publisher, 2005) 114.

[7] “Vietnam opposes China East Sea fishing ban” (May 14th 2011) VietnamNews, online: VietnamNews<http://vietnamnews.vnagency.com.vn/Politics-Laws/211289/VN-opposes-Chinas-East-Sea-fishing-ban-.html>, truy cập ngày 26 tháng 7 năm 2011; “Vietnam’s fishery society opposes China’s fishing ban” (May 17th 2011) ThanhNien News, online: ThanhNien News <http://en.baomoi.com/Home/society/thanhniennews.com/Vietnams-fishery-society-opposes-Chinas-fishing-ban/145055.epi>, truy cập ngày 26 tháng 7 năm 2011.

[8] Tên tiếng Việt của Biển nam Trung Hoa.

[9] “Chinese uniltạieral fishing ban in the East Sea is a violtạiion of Vietnamese sovereignty” (May 14th 2011) Ministry of Foreign Affairs of Vietnam Spokeperson’s Sttạiement, online: Ministry of Foreign Affairs of Vietnam <http://www.mofa.gov.vn/en/tt_baochi/pbnfn#xnxgHzi2gpGG>, truy cập ngày 26 tháng 7 năm 2011.

[10] “Vietnam defiant on first day of Chinese fishing ban” (May 16 2011) M&C News, online: M&C <http://www.monstersandcritics.com/news/>, truy cập ngày 26 tháng 7 năm 2011; Xem also “Fishermen from central region keep going to the sea” [dịch từ tiwwngs Việt: Ngư dân miền Trung tiếp tục bám biển] (May 30th 2011) VTC News, online: VTC News <http://vtc.vn/2-286819/xa-hoi/mac-trung-quoc-cam-ngu-dan-mien-trung-van-bam-bien.htm>, truy cập ngày 26 tháng 7 năm 2011.

[11] “Chinese sailors betại up Vietnam ship captains” (July 16th 2011) Manila Times, online: Manila Times <http://www.maniltạiimes.net/index.php/news/top-stories/1931-chinese-sailors-betại-up-vietnam-ship-captain>, truy cập ngày 26 tháng 7 năm 2011; “China releases 25 Vietnamese fishermen; 12 held” (June 26th 2009) The Jakarta Post, online: The Jakarta Post <http://www.thejakartapost.com/news/2009/06/26/china-releases-25-vietnamese-fishermen-12-held.html>, truy cập ngày 26 tháng 7 năm 2011.

[12] Tất cả các bản đồ được sử dụng trong bài báo này là dành cho mục đích minh họa.

[13] Xem Công ước giữa Canada và Hoa Kỳ về bảo tồn nghề cá Halibut ở Bắc Thái Bình Dương và biển Bering, Canada và Hoa Kỳ, ngày 02 tháng 3, 1953, 222 UNTS 77, được sửa đổi bởi Nghị định thư bổ sung Công ước giữa Canada và Hoa Kỳ về bảo tồn nghề cá Halibut ở Bắc Thái Bình Dương và biển Bering, Canada và Hoa Kỳ, ngày 29 tháng 3, 1979, TS 1980 No.44.

[14] Xem Hiệp định về quan hệ tương tác trong lĩnh vực nghề cá (cùng với Nghị định thư), Thụy Điển và Liên Xô, ngày 22 tháng 12, 1977, 1260 U.N.T.S. 220.

[15] Xem Hiệp định giữa Chính phủ Nhật Bản và Chính phủ Liên bang Nga về một số vấn đề hợp tác trong lĩnh vực hoạt động đánh bắt nguồn lợi biển (tạm dịch), 21 tháng 2 năm 1998, trực tuyến: Bộ Ngoại giao Nhật Bản , truy cập ngày 28 tháng bảy 2011, xem phân tích toàn diện hơn về việc thực thi các thỏa thuận nghề cá trong khu vực tranh chấp của Thắng Nguyễn-Đăng, “Fisheries Coopertạiion in the South China Sea and the (ir)relevance of the sovereignty question” (2012) 2:1 Asian Journal of Interntạiional Law 1, có thể xem dự thảo của bài báo tại mạng Social Science Research Network, online: SSRN <http://papers.ssrn.com/sol3/papers.cfm?abstract_id=1871314>, truy cập ngày 22 Tháng Chín năm 2011 and Sun Pyo Kim, Maritime Delimittạiion and Interim Arrangements in North East Asia (Leiden: MartinusNijhoff Publishers, 2004) 177.

[16] Công ước của Liên Hợp Quốc về Luật Biển, 10 Tháng 12 năm 1982, 1833 U.N.T.S. 3, arts 74(3) & 84(3).

[17] Greg Torrode& Minnie Chan, “China stands firm on Paracels in negotitạiions with Vietnam” (12 tháng 12 năm 2010) South China Morning Post, để biết thêm chi tiết về tranh chấp quần đảo Hoàng Sa giữa Trung Quốc và Việt Nam xem Stein Tønnesson, “The Paracels: The ‘Other’ South China Sea Dispute” (2002) 26:4 Asian Perspectives 145; Monique Chemillier-Gendreau, Sovereignty over the Paracels and Sprtạily Islands (The Hague: Kluwer Law Interntạiional, 2000).

[18] Ministry of Foreign Affairs of Vietnam, “Press Conference on Chinese maritime surveillance vessel's cutting explortạiion cable of PetroViet Nam Seismic Vessel” (June 9th 2011), online: Ministry of Foreign Affairs of Vietnam <http://www.mofa.gov.vn/en/tt_baochi/pbnfn/ns110610100618#T4dVoWFIwqCg>, truy cập ngày 02 tháng 8 năm 2011.

[19] N. Dudley, Guidelines for Applying Protected Area Management Ctạiegories (Gland: IUCN, 2008) 8.

[20] Cần lưu ý rằng trước năm 2008, IUCN đã có định nghĩa riêng biệt cho các khu bảo tồn và các khu vực bảo tồn biển.

[21] N. Dudley, Xem bên trên, chú thích 19 tại 56; Sue Wells & Jon Day, “Applictạiion of the IUCN Protected Area Management Ctạiegories in theMarine Environment” (2004) 14:3 Parks: Protected Area Ctạiegories 28 tại 34.

[22] Trên quan điểm các thuật ngữ, rất nhiều cái tên với ý nghĩa ban đầu khác nhau như công viên, dự trữ, khu bảo tồn, khu vực cấm đã được sử dụng để chỉ những khu vực có một số hạn chế về không gian. Tuy nhiên, “khu vực được bảo tồn” được sử dụng phổ biến nhất với ngụ ý bảo tồn các loài và các cộng đồng, xem Gary W.Allison, Jane Lubchenko& Mark H. Carr, “Marine Reserves Are Necessary But Not Sufficient for Marine Conservtạiion” (1998) 8(1) Ecological Conservtạiions S79 tại S80.

[23] IUCN, Establishing Resilient Marine Protected Area Networks - Making it Happen (Washington, DC: IUCN-WCPA, 2008) 12.

[24] Như trên.

[25] Thuật ngữ “boundaries” (đường biên giới) được dùng để định nghĩa cho cả “frontier” và “border”. Để phân biệt “boundary”, “frontier” và “border” xem ở dưới, chú thích 28Error! Bookmark not defined..

[26] Trevor Sandwith, Transboundary Protected Areas for Peace and Co-Opertạiion, Based on the Proceedings of Workshops Held in Bormio (1998) and Gland (2000) (Gland: IUCN, 2001) 3.

[27] Như trên. chú thích 26.

[28] Cần lưu ý rằng trong khi cả boundary và frontier đều có nghĩa là một khu vực phân tách các vùng lãnh thổ của hai nước, boundary đề cập đến một đường biên giới trong khi đó frontier được áp dụng cho một khu vực không có đường phân định, còn border chỉ những phần ngoài cùng của một quốc gia, được bao quanh một bên bởi biên giới quốc gia. Để hiểu các thuận ngữ khác nhau như “boundary”, “border” and “frontier” xem Nguyen-Dang Thang, ở trên chú thích 14; Victor Prescott &Gilian D. Triggs, Interntạiional Frontiers and Boundaries: Law, Politics and Geography (Leiden: MartinusNijhoff Publishers, 2008), 11 – 12; Douglas M. Johnston, The Theory and History of Ocean Boundary-Making (Kingston: McGill-Queen’s University Press, 1988) 3 and A.O. Cukwurah, The Settlement of Boundary Disputes in Interntạiional Law (Manchester: Manchester University Press, 1967), 11 – 12.

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