China-U.S. Aircraft Collision Incident of April 2001 ...
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China-U.S. Aircraft Collision Incident of April
2001: Assessments and Policy Implications
October 10, 2001
Congressional Research Service
https://crsreports.congress.gov
RL30946
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Congressional Research Service
SUMMARY
China-U.S. Aircraft Collision Incident of April 2001: Assessments and Policy Implications
The serious incident of April 2001 between the United States and the People’s
Republic of China (PRC) involved a collision over the South China Sea between a U.S.
Navy EP-3 reconnaissance plane and a People’s Liberation Army (PLA) naval F-8
fighter that crashed. After surviving the near-fatal accident, the U.S. crew made an
emergency landing of their damaged plane onto the PLA’s Lingshui airfield on Hainan
Island, and the PRC detained the 24 crew members for 11 days. Washington and Beijing
disagreed over the cause of the accident, the release of the crew and plane, whether Washington would
“apologize,” and the PRC’s right to inspect the EP-3. In the longer term, the incident has implications for the right
of U.S. and other nations’ aircraft to fly in international airspace near China. (This CRS Report, first issued on
April 20, 2001, includes an update on the later EP-3 recovery.)
The incident prompted assessments about PRC leaders, their hardline position, and their claims. While some
speculated about PLA dominance, President and Central Military Commission Chairman Jiang Zemin and his
diplomats were in the lead, while PLA leaders followed in stance with no more inflammatory rhetoric. Still, the
PLA is likely to benefit from this incident. Despite PRC claims that the EP-3 plane caused the accident, it appears
that the PLA pilot, executing a close pass in an apparent attempt to impress or intimidate the EP-3 crew, made a
fatal error in judgment. International law is clear that all aircraft have a right of overflight with respect to ocean
areas beyond the territorial sea (past 12 miles out).
There are implications for U.S. policy toward the PRC and Taiwan, and defense policy. This incident of April
2001 is the third in a series of major troubling difficulties since the mid-1990s that could have serious
implications for U.S.-PRC relations. The standoff raised questions about whether the issues of the incident and
arms sales to Taiwan should be linked and whether to change the process of annual arms sales talks with Taipei. A
further worsening of political ties could negatively affect the business climate in China for U.S. firms and disrupt
negotiations over China’s WTO accession. Airborne reconnaissance remains a vital component of intelligence
collection for military and other national security purposes. Observers speculate that the chief benefit to the PRC
from inspecting the EP-3 would be to gather information about U.S. targets and degree of success that could
enable them to prepare countermeasures to hinder future U.S. surveillance efforts. The incident has potential
implications for U.S. military surveillance operations in at least four areas: operational strain on the EP-3 fleet,
conditions for conducting airborne surveillance missions in the future, the need for escorts or other protective
forces, and using unmanned air vehicles (UAVs) for airborne surveillance missions.
There are also implications for U.S. relations with allies and others. Japan seems increasingly concerned
about PRC assertiveness. South Korea is concerned that a major deterioration in U.S.-China relations could
undermine its “sunshine policy” of engaging North Korea. The incident may add to Manila’s desire to revive its
security ties with Washington. Australia has concerns. Moscow’s relatively restrained public response to the
incident is surprising and noteworthy.
RL30946
October 10, 2001
Shirley A. Kan, Coordinator Specialist in Asian Security Affairs
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China-U.S. Aircraft Collision Incident of April 2001: Assessments and Policy Implications
Congressional Research Service RL30946 · VERSION 2 · NEW 39
Author Information
Shirley A. Kan, Coordinator
Specialist in Asian Security Affairs
Stuart D. Goldman
Specialist in Russian and Eurasian Affairs
Richard A. Best Jr.
Foreign Affairs, Defense, and Trade Division
Mark E. Manyin
Specialist in Asian Affairs
Christopher Bolkcom
Specialist in Military Aviation
Wayne M. Morrison
Specialist in Asian Trade and Finance
Robert E. Chapman II
Foreign Affairs, Defense, and Trade Division
Ronald O'Rourke
Specialist in Naval Affairs
Richard P. Cronin
Foreign Affairs, Defense, and Trade Division
David M. Ackerman
American Law Division
Kerry Dumbaugh
Specialist in Asian Affairs
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
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