By Lynn Kuok
Two years after an international tribunal rejected expansive Chinese claims to the South China Sea, Beijing is consolidating control over the area and its resources. While the U.S. defends the right to freedom of navigation, it has failed to support the rights of neighboring countries under the tribunal’s ruling. As a result, Southeast Asian countries are bowing to Beijing’s demands. The tribunal’s main significance was to clarify resource rights. It ruled that China cannot claim historic rights to resources in waters within the 200-nautical-mile exclusive economic zone of other coastal states. It also clarified that none of the land features claimed by China in the Spratlys, in the southern part of the South China Sea, generate an exclusive economic zone.
In late July 2017, Beijing threatened Vietnam with military action if it did not stop oil and gas exploration in Vietnam’s exclusive economic zone, according to a report by the BBC’s Bill Hayton. Hanoi stopped drilling. Earlier this year, Vietnam again attempted to drill, and Beijing issued similar warnings.
A satellite photo of Mischief Reef, March 13.PHOTO: HANDOUT/REUTERS
Other countries, including the U.S., failed to express support for Vietnam or condemn China’s threats. Beijing has also pressured Brunei, Malaysia and the Philippines to agree to “joint development” in their exclusive economic zones—a term that suggests legitimate overlapping claims.
Meanwhile China is accelerating its militarization of the South China Sea. In April, it deployed antiship cruise missiles, surface-to-air missiles and electronic jammers to artificial islands constructed on Fiery Cross Reef, Subi Reef and Mischief Reef. In May, it landed long-range bombers on Woody Island.
Beijing says it can do as it wishes on its own territory. But under international law, Mischief Reef isn’t Chinese. The 2016 tribunal decision made clear that jurisdiction over a low-tide elevation lies with the country in whose territorial sea or exclusive economic zone it is located, and no other country can claim sovereignty. Because Mischief Reef is located in the Philippines zone, the Philippines has jurisdiction over it.
Sovereignty over the rest of the features in the South China Sea continues to be fiercely contested. As I wrote in these pages last year, international law on the responsibility of an occupying state in a disputed area is far from clear, so Beijing’s actions are at best in a legal gray zone.
While Beijing’s dramatic military buildup in the South China Sea has received much attention, its attempts at “lawfare” are largely overlooked. In May, the Chinese Society of International Law published a “critical study” on the South China Sea arbitration case. It rehashed old arguments but also developed a newer one, namely that China is entitled to claim maritime zones based on groups of features rather than from individual features. Even if China is not entitled to historic rights within the area it claims, this argument goes, it is entitled to resources in a wide expanse of sea on the basis of an exclusive economic zone generated from outlying archipelagoes.
But the Convention on the Law of the Sea makes clear that only archipelagic states such as the Philippines and Indonesia may draw straight archipelagic baselines from which maritime zones may be claimed. The tribunal also explicitly found that there was “no evidence” that any deviations from this rule have amounted to the formation of a new rule of customary international law.
China’s arguments are unlikely to sway lawyers, but that is not their intended audience. Rather Beijing is offering a legal fig leaf to political and business elites in Southeast Asia who are already predisposed to accept Beijing’s claims in the South China Sea. They fear China’s threat of coercive economic measures and eye promises of development through offerings such as the Belt and Road Initiative.
Why did Washington go quiet on the 2016 tribunal decision? One reason is Philippine President Rodrigo Duterte’s turn toward China and offer to set aside the ruling. The U.S. is also worried about the decision’s implications for its own claims to exclusive economic zones from small, uninhabited land features in the Pacific.
The Trump administration’s failure to press Beijing to abide by the tribunal’s ruling is a serious mistake. It undermines international law and upsets the balance of power in the region. Countries have taken note that the tide in the South China Sea is in China’s favor, and they are making their strategic calculations accordingly. This hurts U.S. interests in the region.
The U.S. still has a chance to turn things around. It must coordinate a regional and international effort to insist that Beijing abides by international law. Coastal states must be supported in standing up to any incursions into their exclusive economic zones, including through coastal state-initiated legal action.
There must also be greater pushback against Beijing’s claims that China is entitled to do as it likes on its own territory. In all of this, the U.S. will have greater credibility if it finally accedes to the Convention on the Law of the Sea. These efforts will be critical to defend a rules-based order against China’s bid for hegemony in the region.
Ms. Kuok is an associate fellow at the International Institute for Strategic Studies-Asia and a senior research fellow at the Centre for Rising Powers, University of Cambridge.
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