灰色地帶下的中資擴張：日本土地安全的風險與應對

Expansion of Chinese Capital in the Gray Zone: Risks and Responses for Land Security in Japan

近年中國資本積極收購日本自衛隊基地、核能設施及邊境島嶼周邊土地，引發國安疑慮。此類投資已超越經濟範疇，逐漸成為灰色地帶滲透與情報活動的途徑，使土地從商業資產轉化為影響軍事、政治與制度安全的地緣工具。日本於2021年制定《重要設施週邊及邊境島嶼土地利用調查管制法》，將土地交易納入審查，惟制度偏重事後監管，缺乏事前審查與跨部門協調，難以有效防範。本研究採比較分析法，透過美國CFIUS、澳洲FIRB與日本制度的對照，指出日本制度反應遲緩的原因源於其法律文化、行政架構的結構性差異。研究顯示，民主國家需在維持市場開放與保障國家安全間建立具前瞻性、透明性與跨部門整合能力的制度，以強化面對灰色地帶行動時的韌性。

In recent years, Chinese capital has actively acquired land surrounding Japan’s Self-Defense Force bases, nuclear facilities, and remote border islands, raising significant national security concerns. These investments have moved beyond the realm of economic activity and have increasingly become channels for grayzone infiltration and intelligence operations, transforming land from a commercial asset into a geopolitical tool that affects military readiness, political autonomy, and institutional security. In 2021, Japan enacted the Act on the Review and Regulation of the Use of Real Estate Surrounding Important Facilities and on Remote Territorial Islands to place such transactions under regulatory scrutiny. However, the framework remains predominantly ex post, lacking prior review mechanisms and effective interagency coordination, thereby limiting its preventive capacity. Employing a comparative analytical approach, this study examines the U.S.’s CFIUS, Australia’s FIRB, and Japan’s land security framework to identify how the Japan’s legal culture and administrative architecture are the structural sources of Japan’s delayed institutional response. The findings suggest that democracies must develop forwardlooking, transparent, and well-integrated regulatory mechanisms that balance market openness with national security in order to enhance institutional resilience against gray-zone activities.