由海底電纜維護之國際實踐論我國的應對之策

Taiwan’s Response Strategies for Submarine Cable Protection: Lessons from International Practices

臺灣位處印太區域關鍵節點，為全球海底電纜交匯之要衝，海纜安全日益成為國土防衛與通訊韌性的重要風險來源。2025年前三季已發生至少9起海纜斷裂事故，反映灰色地帶威脅已成常態。本文運用文獻研究法與比較研究法，分析澳洲海纜保護區制度、北約軍事監控措施，以及歐盟《海底電纜安全行動計畫》之預防、偵測、回應、回復、嚇阻架構，作為修法參考方向。儘管行政院於2025年9月提出「海纜7法」修正草案，惟立法仍存缺口：一、國家安全加重條款適用標準不明；二、事前防範機制薄弱；三、高風險船舶預警監管未完整建立；四、域外管轄依據不明確；五、國際合作機制尚未制度化。就此，本文建議採行三層防禦體系：事前防範—建立整合監視機制與情資共享；事中監管—強化高風險船舶識別與管控；事後重罰與跨部會協調—確保執法一致性。同時宜透過臺歐情資共享、印太區域聯合監控機制與國際法規現代化三個面向建立制度化合作，並配合立法院已通過之附帶決議（要求內政部公布海纜及管道圖資以利宣導與執法），方能有效應對灰色地帶威脅，確保臺灣關鍵基礎設施安全。

Taiwan occupies a critical node in the Indo-Pacific region and serves as a major convergence point for global submarine cable networks. As gray zone threats continue to intensify, submarine cable security has increasingly become a central concern for national defense and communications resilience. At least nine cable severance incidents were recorded in the first three quarters of 2025, reflecting the normalization of deliberate infrastructure disruption as a coercive instrument below the threshold of armed conflict.
This article employs documentary research and comparative analysis to examine three international frameworks as legislative reference models: Australia's submarine cable protection zone regime, NATO's military surveillance measures, and the European Union's Submarine Cable Security Action Plan, which structures its approach around five operational pillars—prevention, detection, response, recovery, and deterrence. These frameworks collectively offer a comprehensive architecture for strengthening Taiwan's legal and institutional capacity to protect critical undersea infrastructure.
Although the Executive Yuan introduced the ''Seven Cable Laws'' amendment package in September 2025, significant legislative gaps remain unaddressed. Specifically, five deficiencies have been identified: first, unclear application standards for national security aggravated offense provisions; second, inadequate ex ante preventive mechanisms; third, incomplete early-warning surveillance systems for high-risk vessels; fourth, ambiguous jurisdictional basis for extraterritorial enforcement; and fifth, the absence of institutionalized international cooperation mechanisms.
To address these gaps, this article proposes a three-tier defense framework: ex ante prevention through integrated surveillance systems and intelligence sharing; in situ monitoring through enhanced identification and control of high-risk vessels; and ex post deterrence through severe penalties and inter-agency coordination to ensure enforcement consistency. On the international dimension, the article recommends institutionalized cooperation across three tracks—Taiwan-EU intelligence sharing, Indo-Pacific joint monitoring mechanisms, and modernization of applicable international legal norms. These measures should be complemented by the Legislative Yuan's adopted resolution requiring the Ministry of the Interior to publish submarine cable and pipeline mapping data to facilitate public awareness and enforcement. Only through such a comprehensive and coordinated approach can Taiwan effectively counter gray zone threats and safeguard its critical infrastructure security.