日本制定首版太空安全戰略(Japan Launched Its First Space Security Strategy)

發佈日期：2023-07-05

日本內閣府「宇宙開發戰略本部」以及內閣會議，於6月13日先後決議通過《宇宙基本計畫》及其工程表、《宇宙安全保障構想》等3項推動開發太空的政策指導文件，而後者乃是日本首版太空安全戰略，點出太空安全環境的現狀與挑戰，並提出因應挑戰的途徑及其目標。以中共於2007年1月發射飛彈擊毀位於低軌太空的自家氣象衛星為契機，日本於翌(2008)年5月以議員立法的方式制訂《宇宙基本法》，解除1969年禁止太空軍事用途的國會附帶決議禁令，並且依據該法成立由首相擔任本部長、成員包括內閣全體閣員的「宇宙開發戰略本部」，作為日本太空發展的最高決策中心。

將太空視為「戰鬥領域」的《宇宙基本計畫》

    日本於2009年6月依據《宇宙基本法》制定首版《宇宙基本計畫》，揭開日本太空防衛時代的序幕，2013年1月制定的第二版計畫，明確化自衛隊利用太空的防衛任務。日本於同(2013)年12月制定首版《國家安全保障戰略》，具體規劃運用太空以確保國防安全的途徑，亦即將「擴充強化情蒐衛星的功能」，以及「在自衛隊部隊的運用、情蒐與分析、海洋監視、情報通信、定位等領域，有效運用我國所有的各種衛星，並且確立太空狀況的監視體制」。同時公布的2013年版《防衛計畫大綱》，亦首度將太空突出為防衛重點，表明將運用太空進行全天候的情蒐、警戒監視、以及偵察的能力，以期建構「統合機動防衛力」（Dynamic Joint Defense Force）。第三版《宇宙基本計畫》，則是將此途徑付諸實現的行動計畫。

    有鑑於安全情勢日益嚴峻，第三版計畫於2015年1月制定，將「確保太空安全」列為日本太空發展首要政策目標，主要在於強化「太空狀況感知」（Space Situational Awareness, SSA）能力以提升太空設施安全、利用太空所獲得數據與分析數據所獲得的情報，藉以強化自衛隊戰力。而第四版計畫於2020年6月制定，則採納2018年美國《國家太空戰略》的威脅認知，將太空視為「戰鬥領域」，提出整備確保太空安全與強化太空防衛能力的措施，並且先後新編制專責SSA任務的「宇宙作戰隊」、「宇宙作戰群」，為日後建構太空版美日同盟奠定基礎。

建構太空版美日同盟

   美、日同盟最高對話機制之外交與國防部長聯席會議(泛稱：2+2會議)，於2011年6月21日假美國華府召開，首度確認兩國在太空防衛合作，具體揭櫫同盟推動太空軍事合作的特定領域。其後，美、日雙方陸續建構「安全保障領域日美太空協議」、「全方位太空對話」、「太空合作工作組」等對話機制。不僅如此，日本自2016年起，參加美軍舉辦的SSA多國兵棋推演「全球哨兵」（Global Sentinel），以強化日本航空自衛隊操作SSA的知識與技術。其中，「2+2會議」於2015年4月公布《美日防衛合作指針》，將太空安全視為同盟防衛合作的重點，表明將合作強化各自太空資產的復原力、SSA與「海洋領域監測」（Maritime Domain Awareness, MDA）能力。

    再次更新的日本《防衛計畫大綱》於2018年12月表明，奪取太空、網路、電磁波等新領域的優勢地位事關國家存亡，主張必須將新領域與傳統領域的陸海空能力予以有機融合，以建構因應跨領域威脅的「多次元統合防衛力」（Multi-domain Defense Force）。日本慶應大學教授青木節子指出，第四版《宇宙基本計畫》反映2018年版大綱揭櫫建構「多次元統合防衛力」的需求，增強自衛隊因應「太空/網路/電磁波」新領域挑戰的戰力。第四版計畫前言表明，太空系統在防衛上所扮演的角色日益吃重，不僅止於因應反衛星武器的威脅，相關國家也積極開發各種攻擊太空設施的手段，更加突出太空領域安全的重要性與急迫性。因此，該計畫揭櫫將與同盟友好國家進行合作之外，同時擬訂的《太空基本計畫工程表》也提出整備被視為日本版GPS的「準天頂衛星系統」（Quasi-Zenith Satellite System）、X波段防衛衛星通信網、間諜衛星、即應小型衛星系統等用以確保太空安全的九項措施。

確保太空安全三項戰略途徑

    岸田文雄內閣於2022年12月制定的第二版《國家安全保障戰略》表明，日本將擬訂具體化太空安全領域的挑戰及其因應對策的太空安全戰略，並且將其反映在《宇宙基本計畫》。與此同時公布、由《防衛計畫大綱》更名而來的《國家防衛戰略》亦表明，為從根本上強化日本防衛力量，必須整備利用多數衛星構成的星座群以強化「近乎實時」(near-real-time)的情蒐、通訊、定位等功能，凸顯太空能力在提升防衛力量、特別是針對敵國攻擊策源地之「反擊能力」所扮演的關鍵角色。在此需求下，日本制定第五版《宇宙基本計畫》以及首版《宇宙安全保障構想》。

　　新版計畫賡續第三版以來的主張，依然將確保太空安全列為首要任務，並揭櫫「透過間諜衛星與衛星星座群進行情蒐的太空安全」、「建構SSA等能力以確保太空資產安全」、「確保安全與太空產業的良性循環」等3項課題。與該計畫同時制定的《宇宙安全保障構想》表明，日本太空安全的目標在於「透過太空安全以增進國家的和平與繁榮、國民的安全與安心，以及與同盟友好國家共同維持太空的穩定使用與自由進出」，並且揭櫫實現此目標的三項戰略途徑:「來自太空的安全」、「太空資產的安全」、「太空產業的培育養成」。

    其中，第一項要從根本上擴大太空系統的使用以確保國防安全，包括確立廣範圍、高頻度、高精密度的情蒐態勢，確立抗竊聽、抗干擾的資通態勢，對應飛彈威脅，強化衛星定位功能，確立大規模、具彈性的太空運輸態勢；第二項要確保安全且穩定的太空使用，包括充實強化SSA等能力，管理衛星壽命週期以利長期、經濟地使用，強化應對突發事態能力，主動貢獻國際規範之制定；第三項要確保安全與太空產業發展的良性循環，包括執行新制定的《太空技術戰略》，強化政府與「宇宙航空研究開發機構」(JAXA)等相關機關間的合作，活用民間創新技術。簡言之，日本首部太空安全戰略目標，在於透過第一項與第二項途徑以建構確保國防安全的太空架構，而第三項途徑則是支援與保障前兩項的早期實現。

 (國立臺灣師範大學東亞系教授  林賢參)

Japan Launched Its First Space Security Strategy

Japan passed three space policy guidance documents on June 13th, including the Basic Plan on Space Policy and its lists of major programs as well as the Space Security Initiative. Being Japan’s first space security strategy, the initiative points out the present space security landscape and challenges. Also laid out are ways to address the challenges and the goals of the initiative. China launched a missile and destroyed its own weather satellite on January 2007. Alarmed by the incident, Japan enacted the Basic Space Law and removed a parliament resolution in 1969 that banned the military use of space in May 2008. The Strategic Headquarters for Space Development was established as the highest decision-making body for Japan’s space development in accordance with the Basic Space Law. It is headed by the prime minister with members consisting of all cabinet officials.

 The Basic Plan on Space Policy: regarding space as an operational domain

Japan launched its first Basic Plan on Space Policy in accordance with the Basic Space Law in June 2009. The second Basic Plan was adopted in January 2013 and explicitly stated the defense missions of Japan Self-Defense Forces (JSDF) with the use of space. Japan released its first National Security Strategy (NSS) in December 2013 and made specific plans for ways to ensure defense security by using space. The National Defense Program Guidelines for 2013 first designated space as a key area for defense, hoping to build a Dynamic Joint Defense Force. The third Basic Plan on Space Policy was an action plan for realizing the goal.

It was unveiled in January 2015 in view of an increasingly severe security environment and described “ensuring space security” as a foremost policy goal in Japan’s space development. Main task was to strengthen space situation awareness (SSA) ability to enhance the security of space facilities and use data acquired from space and intelligence from analyzing the data to improve the military capabilities of the JSDF. The fourth Basic Plan was released in June 2020. It adopted the threat awareness in the U.S. National Space Strategy unveiled in 2018 and regarded space as an operational domain. Japan established the Space Operations Squadron and Space Operations Group specifically focusing on SSA missions and laid a foundation for launching a US. -Japan space alliance in the future.

 Establish a US. -Japan space alliance

At the U.S.-Japan Security Consultative Committee (known as the “2+2” Meeting) held in Washington D.C. on June 21st, 2011, the two countries for the first time confirmed their cooperation in space defense and specific areas for promoting military cooperation in space. The U.S. and Japan have since successively established mechanisms for space-related dialogues. Moreover, Japan has participated in the Global Sentinel exercise organized by the U.S. military since 2016 to strengthen the ability of the Japan Air Self-Defense Force (JASDF) to operate the SSA system. The “2+2” Meeting released the Guidelines for U.S.-Japan Defense Cooperation in April 2015, and space security was regarded as a key area for their defense cooperation. The two sides made clear their intention to cooperate in strengthening the resilience of their space assets and their SSA ability.

Japan’s revised National Defense Program Guidelines (NDPG) unequivocally stated in December 2018 that achieving superiority in new domains (space, cyberspace and electromagnetic spectrum) is critical to Japan’s existence as a sovereign nation. The guidelines argued that it is essential to organically fuse capabilities in new domains (space, cyberspace and electromagnetic spectrum) and traditional domains (land, sea and air) to build a multi-domain defense force to address cross-domain threats. According to Setsuko Aoki, a professor at Keio University, the fourth Basic Plan reflected the need to build a multi-domain defense force set forth by the 2018 NDPG and strengthen the JSDF’s military capabilities to address challenges from the new domains (space, cyberspace and electromagnetic spectrum).

    The preamble of the fourth Basic Plan states that the role of space systems becomes more important than ever in defense. Countries need to counter threats posed by anti-satellite weapons. Some countries are also actively developing ways to attack space facilities. These developments further underscore the importance and urgency of maintaining space security. Apart from cooperation with allied and friendly countries proposed by the Basic Plan, the plan’s lists of major programs include the Quasi-Zenith Satellite System (QZSS), seen as Japan’s version of the GPS system, X-band defense satellite communications networks, spy satellites and operationally responsive small satellite systems to implement the nine measures of ensuring space security.

 Three strategic paths to ensure space security  

According to the new National Security Strategy adopted by the Fumio Kishida Cabinet in December 2022, Japan will formulate a space security strategy that identifies challenges to space security and ways to respond, the strategy will be reflected in the Basic Plan on Space Policy. In the meantime, the National Defense Strategy (NDS), renamed from the National Defense Program Guidelines, also makes clear that Japan will develop near-real-time information gathering, communication and positioning capabilities by utilizing satellite constellations. These underscore that capabilities in space is critical to enhancing defense capability, in particular the ability to launch counterstrikes against the areas where attacks are launched. Japan therefore adopted the fifth Basic Plan on Space Policy and its first Space Security Initiative.

The new Basic Plan maintains the concept of the third version and still designates ensuring space security as a foremost task. It also sets forth three topics, i.e., space security through intelligence gathering by spy satellites and satellite constellations, building SSA abilities to safeguard the security of space assets and ensuring a virtuous cycle in the security and space industries. The Space Security Initiative states that Japan’s space security goals are bolstering peace and prosperity for the nation, enhancing the security of its people and joining hands with allies and friendly countries to maintain the stable use of space and freedom of entering and exiting space. The initiative also presents three strategic paths: security from space, security of space assets and nurturing and developing the space industry.

The first path is to expand the use of space systems to safeguard national defense and security, including ensuring a broad-ranged, frequent and high-precision intelligence gathering posture, ensuring an information and communication posture to counter eavesdropping and interference and ensuring a large-scale and flexible space transportation posture to strengthen the role of satellite positioning in addressing missile threats. The second path is to ensure the safe and stable use of space, including strengthening SAA and other capabilities, managing the lifespan of satellites to facilitate long-term and economical use, enhancing the ability to respond to unexpected incidents and actively contributing to the formulation of international norms. The third path is to secure a virtuous cycle in the development of the security and space industries, including implementing the newly adopted Space Technology Strategy, strengthening cooperation between the government and related institutions such as the Japan Aerospace Exploration Agency (JAXA) to flexibly use innovative technologies of the private sector. Simply put, the goals of Japan’s first Space Security Initiative is to establish a space framework that safeguards national defense and security through the first and second paths, while the third path is to support and ensure an early implementation of the first and second paths.

(Hsien-Sen Lin, Professor of Department of East Asian Studies at National Taiwan Normal University)

https://iccs.org.tw/NewsContent/80