1672-8505

CN 51-1675/C

国际投资协定国家安全例外条款泛化适用:新发趋势与中国因应

Overgeneralized Application of National Security Exception Clauses in International Investment Agreements: Emerging Trends and China's Responses

  • 摘要: 在逆全球化思潮抬头的背景下,国际投资协定国家安全例外条款呈现泛化适用的新趋势:法律属性演变呈现从被动抗辩到主动裁量、审查性质异化表现为法律形式与政治意图的张力加剧、规制范围展现从传统安全向非传统安全扩张。此种泛化表现以美国FIRRMA法案及TikTok案为典型,揭示美欧借国家安全例外条款的“自裁决性”机制推行保护主义、遏制竞争的现实路径,致使我国境外投资利益保护形势越发严峻。文章通过重新厘定条款的语义边界、法益要件及比例原则三重适用要件,揭示其泛化适用的法律悖论与解释倾向,并提出了应对策略。首先,完善BIT条约中国家安全例外条款的内容,限定敏感领域范围,嵌入透明度义务与补偿机制。其次,改革国际投资仲裁管辖路径,将国家安全审查决定纳入ICSID审查范围,构建“初步证明—实质关联—比例原则检验—目的正当性”四阶分层审查机制。最后,引导企业变通资本出海模式,通过VIE架构搭建安全风险防火墙,分离控制权与收益权,规避东道国身份审查,最大限度维护境外投资利益。

     

    Abstract: Against the backdrop of the rising trend of de-globalization, national security exception clauses in international investment agreements (IIAs) have shown a new tendency toward overgeneralized application. Specifically, three key shifts have occurred: their legal nature has transformed from a "passive defense" tool to an "actively discretionary" measure; the tension between the "legal form" and "political intent" inherent in security reviews has intensified, leading to a distortion in the nature of these reviews; and their regulatory scope has expanded from "traditional security" to include "non-traditional security" domains. Such overgeneralization is exemplified by the U.S. Foreign Investment Risk Review Modernization Act (FIRRMA) and the TikTok case. These cases illustrate how the United States and Europe employ the "self-judging" mechanism of national security exception clauses for protectionist purposes, thereby posing new challenges to the protection of China's overseas investment interests. By redefining the three core application elements of these clauses—semantic boundaries, legitimate interest requirements, and the principle of proportionality—this paper exposes the legal paradoxes and interpretive biases in their overgeneralized application and proposes corresponding response strategies. First, it suggests improving the content of national security exception clauses in bilateral investment treaties (BITs): defining the scope of sensitive areas, incorporating transparency obligations, and establishing compensation mechanisms. Second, it advocates reforming the jurisdictional pathway of international investment arbitration: including national security review decisions within the jurisdiction of the International Centre for Settlement of Investment Disputes (ICSID) and constructing a four-tier hierarchical review mechanism comprising "preliminary proof, substantive relevance, proportionality test, and legitimacy of purpose". Finally, it recommends guiding enterprises to adapt their overseas capital deployment models: building a security risk firewall through Variable Interest Entity (VIE) structures, separating control rights from beneficial rights to avoid identity-based reviews by host countries, and thus maximizing the protection of overseas investment interests.

     

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