【作者】 吴双全；

【导师】 周忠海；

【作者基本信息】 中国政法大学 ， 国际法学， 2009， 博士

【副题名】以《公民权利和政治权利国际盟约》第27条为视角

【摘要】 几乎在每一个国家的疆界内,都有一种或多种少数人群体的存在。这些少数人群体在人种、族裔、宗教、语言或文化等方面,具有不同于其所在国家或地区(以下简称“居住国”)的多数人的自身特征。少数人及其群体已经成为一种政治力量和利益集团,世界各国及国际社会已经不能无视其存在、利益和影响。少数人之间、少数人与多数人之间的和睦相处以及对于每一个群体的不同特征的尊重,是我们这个存在着民族多样性与文化多样性的多元国际社会的一笔巨大的财富。满足民族、族裔、宗教和语言上的不同群体的愿望和要求并保证属于少数人群体的个人的权利不受侵犯,是对所有个人的尊严和平等权的确认,有助于缓和有关群体及其个人之间的紧张关系,促进多元社会充分发挥其全部潜力,维护安定、和谐的国际秩序。所以,少数人权利的保护问题已经与国家的稳定与统一、世界的和平与发展、人类的前途与命运是息息相关的。尽管自上个世纪50年代以后,对于少数人权利保护的必要性的国际承认有一个渐进的发展过程,但是在冷战结束以后,族群冲突的急剧增加,使得少数人权利保护问题又变得极为重要和紧迫。时至今日,少数人的地位及其权利保护问题,在世界各地仍是无法回避的核心问题。到目前为止,《公民权利和政治权利国际盟约》(the International Covenant on Civil and Political Rights,以下简称《盟约》)第27条依然是专门用以保护少数人权利的唯一一条具有普遍拘束力的条约规定。尽管该条规定明确使用了“少数人”(minority)这一术语,正式承认了少数人权利的存在,但是,由于这一仅有的规定措辞十分谨慎,内容模糊含混,引起了很多争议,有关方面的理解各不相同。所有这些使得少数人权利的保护问题发展成为当今国际社会和许多国家面临的一个十分复杂又极为敏感的问题。如何依据国际法及国内法很好地解决这一问题,已经日益为世人所共同关注。本文仅拟在他人现有的研究成果的基础上,就少数人权利国际保护的层面,以《公民权利和政治权利国际盟约》第27条的规定为视角,结合国际实践中的具体案例,从“少数人”概念的界定、少数人权利的主要内容、少数人权利国际保护的必要性、少数人权利国际保护的主要途径、少数人权利国际保护的制度缺陷及其矫正、中国少数人权利保护的实践等几方面,对这一问题作一粗浅探讨,以期有利于促进少数人各种权利的有效保护及我国涉及少数人权利保护的法律制度的适时调整与逐步完善。本文第一章主要探讨少数人的概念问题。从理论研究应有的逻辑顺序来看,要研究少数人的权利及其国际保护问题,首先需要解决的问题正是对“少数人”这一概念进行界定,以便明确应当受到国际保护的少数人权利的受益者即主体之具体所指。所以,本章围绕“少数人”的称谓、已有的“少数人”的定义、“少数人”定义的构成要素、本文对于“少数人”的定义以及“少数人”与其他相关概念的关系等方面,对于这一问题予以分析。本章重点比较分析了已有的对于“少数人”的各种定义,然后结合“少数人”的定义应有的主客观要素,吸收以上各定义之所长,提出了作者认为合理的“少数人”的定义,为后面的论述奠定了概念的基础。之后,对于“少数人”这一概念与相关概念的关系的分析,也有助于更好地理解“少数人”这一概念的基本内涵。由于本文的论述主要是以《盟约》第27条的规定为视角的,因此文中所指称的“少数人”当然主要是指该27条所限定的人种/种族、宗教或语言上的少数人。第二章探讨少数人权利的主要内容。本文要探讨的是少数人权利的国际保护,所以在明确了少数人的概念之后,应该接着了解的是区别于多数人权利的少数人权利的主要内容,所以本章主要以《在民族或族裔、宗教和语言上属于少数群体的人的权利宣言》(Declaration on the Rights of Persons Belonging to National or Ethnic, Religious and Linguistic Minorities,以下简称《少数人权利宣言》)的有关规定为依据,结合人权事务委员会受理的一些典型的具体案例,从六个方面,分析了少数人权利的主要内容。这六个方面的权利包括:享有自己的文化、信奉和践行自己的宗教、使用自己的语言、充分参与社会公共生活、成立和保持自己的社团以及进行平等、自由与和平的交往。尽管《少数人权利宣言》没有法律拘束力,但是它是联合国为了执行《盟约》第27条而专门制定的第一个以单独文件形式规定少数人权利的国际文件,是对于该27条的具有权威性的详细解释,而且该文件对于少数人权利的规定也比较全面。所以,本章主要以该文件为依据阐述少数人权利的主要内容。第三章探讨少数人权利国际保护的必要性。基于本文的结构,论证了少数人权利的内容,就该论述保护少数人权利的必要性。少数人除了享有人人都享有的普遍性人权外,还应享有一些特别权利。为了保证少数人享有这些普遍性人权,就要为其提供与其他人一样的平等保护;为了保证少数人享有这些特殊权利,就要为其提供与其他人不一样的特殊保护。所以,本章首先论述了平等保护的必要性,然后重点论述了特殊保护的必要性,并借鉴已有的研究成果,对于那种认为对于少数人权利保护来说,有了平等保护,就不需要特殊保护的主张进行了批驳。最后,本章还指出,少数人权利也不是绝对的,也要受到一定的限制。第四章探讨少数人权利国际保护的主要途径。谈了少数人权利保护的必要性,就应该论述应该怎样保护这些权利。要做到这一点,需要制定相应的国际人权文件,采取相应的人权保护措施。实际上,国际人权文件的制定已经取得了巨大成就,为实现少数人权利的国际保护提供了必要的法律依据。然而,在有关国际人权公约的执行措施即人权保护的实现途径方面还有很多不足之处。所以,接下来本章主要从缔约国定期报告制度、国家间的指控制度、个人来文制度、普遍定期审议制度、早期预警机制、非政府组织促进、国际谴责、国际制裁、司法保护等九个方面对于少数人保护的主要途径进行了评析。第五章探讨少数人权利国际保护的制度缺陷及其矫正。少数权利的国际保护还存在不少问题,而造成这些问题的主要原因在于这种保护的制度缺陷。所以,在上一章对于少数人权利国际保护的途径或制度进行介绍和评价的基础上,本章则选择了其中最重要的一些制度,分析了其存在的主要缺陷及其矫正办法。这些制度包括:缔约国定期报告制度、国家间的指控制度、个人来文制度、普遍定期审议制度、早期预警机制和司法保护等。第六章探讨中国少数人权利保护的实践。在前面分析了少数人权利国际保护的主要问题以后,对照国际人权公约的有关规定,结合中国的立法与实践,分析中国少数人权利保护问题,成了本文的最后一个重点。本章首先论证了中国少数民族是国际法上的少数人的重要组成部分,然后阐述了中国少数民族权利保护的历史背景、基本制度,最后分析了中国少数民族权利保护存在的问题及其应对策略。最后指出,中国已经加入了25项国际人权公约,并积极采取立法、行政、司法措施,促进少数民族权利的保护。随着中国的法律的进一步完善,法律实施工作的进一步加强,中国将与国际社会一道,一如既往地不断努力,促进中国少数人权利保障事业的持续进步和国际人权事业的健康发展。少数人权利的保护问题由来已久,积淀厚重,内容宽泛,博大精深。本文主要围绕《公民权利和政治权利国际公约》第27条的规定,从少数人的概念入手,结合具体案例,分析了上述主要问题。文章认为,少数人是指那些在一定期限内居住在一个国家,处于非支配地位,数量上具有一定规模但少于该国其他人口,在民族、人种、宗教和语言等方面具有不同于其他人口的特征,并且具有维持这些特征的共同愿望的人。为了保证少数人充分享有其各项权利,不仅应该给其提供平等保护,而且应该给其提供特殊保护。少数人权利的国际保护尽管有一些制度保障,但这些制度存在诸多的缺陷,应该采取各种措施,予以及时矫正。国家有义务采取各种措施保护少数人的权利,但是以不破坏国家统一和领土完整为前提。中国的少数人保护取得了巨大的成就,但还有一些地方值得继续努力改进,中国将与国际社会一道积极努力,促进少数人权利保护和国际人权事业的健康发展。更多还原

【Abstract】 It is a universal phenomenon that almost every State has one or several minority groups that are characterized by their unique national, ethnic, religious, linguistic or cultural identities which distinguish these minority groups from the majority of the population of the States or region (hereinafter referred to“the State of residence”) where they live. Minority groups have become a political force and an interest group, thus international community and all the States in the world can not ignore their existence, interest and influence. Harmony between minorities themselves, minority and majority, and the respect shown to unique characteristics of every group are the great treasure to the international community which has a diversity of nation and culture. It should be assured that national, ethnic, religious and linguistic appeals of different groups fulfilled and the minority rights protected, and that is the recognition of individual’s dignity and equality and that would be useful in relieving the tense between groups and individuals as well, and that would promote the potential of the pluralistic society and maintain the stability and harmony of the international system. Therefore, the issue of the protection of minority rights is closely linked to stability and unity of the States, the world’s peace and development and the future and destiny of human race.Although from 1950s on, international recognition of the necessity of the protection of minority rights has gained a gradual development, with the end of the Cold War, conflicts between ethnic groups have sharply increased and the issue of the protection of minority rights becomes important and urgent again. Hitherto, the issues of the status of minority and the protection of their rights still remain as the core issues that people around the world can not neglect. Up to now, article 27 of The International Covenant on Civil and Political Rights (hereinafter referred to the Covenant) is the only one provision which has the universal binding force to protect minority rights. The term“minority”is explicitly employed in the provision and the existence of minority rights is recognized formally, but due to cautious diction and ambiguous content, controversial arguments and different understandings arose. Thus, the issue of protection of minority rights has turned into a very sensitive and complex one that many States and international community should face up to. Public attention has been drawn to the issue and the way to solve it by international law and national law. With the base of other people’s study and the perspective of article 27 of the Covenant, also with reference to international cases, the thesis aims at a rough discussion in terms of definition of minority, major content of minority rights, necessity of international protection of minority rights and the major approaches to it, defects of international protection system of minority rights and the way to rectify it and China’s practice of protection of minority rights, so as to promote the adjustment and improvement of the law concerning protection of minority rights and assure the effective protection.The first chapter of the thesis primarily discusses the definition of minority. Theoretically, the definition of minority should come first in the study of protection of minority rights so as to be clear about beneficiary who are supposed to get international shelter. Therefore, appellation of minority, present definition of minority, elements of minority definition, definition of minority in the thesis and other concepts related to minority definition will be focused to analyse the definition. The emphasis is laid upon the analysis of various present definition of minority and the thesis makes the best of their merits and combines the objective and subjective factors together to put forward a reasonable definition in the author’s opinion which paves the way for the later discussion. The analysis of the relation between minority definition and other relevant concepts will also be useful in understanding the basic connotation of minority definition. The thesis adopts the perspective of article 27 of the Covenant, so“minority”in this thesis confines to national/ethnic, religious or cultural minorities. The second chapter discusses the major content of minority rights.Since the task of the thesis is to study the international protection of minority rights and the first chapter gives the clear definition of minority, major content of minority rights which differs from majority rights should be conveyed accordingly, so the second chapter, based on the Declaration on the Rights of Persons Belonging to National or Ethnic, Religious and Linguistic Minorities(hereinafter referred to Declaration on the Rights of Minorities) and some cases considered by human rights committee, analyses minority rights from six aspects and they are: the rights to enjoy their own culture, profess and practise their own religion, use their own language, participate in public life, establish and maintain their own associations and free and peaceful contacts without discrimination. The Declaration on the Rights of Minorities does not have a legal binding force, however, it is the first international document which is specially set up for the article 27 of the Covenant and provides an authoritative and particular explanation and a complete prescript concerning minority rights. Hereupon, the second chapter is primarily based on the document to expatiate on minority rights.The third chapter of the thesis focuses on the necessity of international protection of minority rights. From the angle of the thesis’s structure, the necessity of international protection of minority rights should at the heel of that of the content. Apart from human rights enjoyed by every individual, minorities should be granted other special rights. Protection of human rights should be provided equally to minorities and other people, as for special rights of minorities, the special protection is needed. Hereupon, the necessity of equal protection is dealt with firstly in the thesis and the necessity of special protection is highlighted later. Making the best of present study and research, the thesis criticizes the misunderstanding that there is no need for minorities to enjoy special protection since equal protection is guaranteed. Finally, the author points out that minority rights are not absolute but relative and should be restricted within a certain range.The task of the fourth chapter is to study major approaches to international protection of minority rights. Before the discussion of how to protect minority rights, the necessity of the protection of minority rights having been discussed, then the thesis proceeds to illustrate how to protect these rights. Some relevant international human rights documents are needed to be laid down and corresponding measures are expected to be taken to live up to the point. In fact, significant achievements have been made in the field of international documents, which provides legal reference for realization of international protection of minority rights. Nevertheless, there are some flaws in the execution of international human rights conventions i.e. realization of human rights protection. Therefore, the chapter focuses on the State Parties Periodic Reporting System, the Inter-state Complaints Procedures, the Individual Communication Mechanisms, Universal Periodic Review, Early Warning Mechanisms, Promotion by Non-Governmental Organizations, International Denouncement, International Sanctions, Judicial Protection etc. to analyze and comment the major approaches to the protection of minority rights.The fifth chapter discusses the defects and rectification of the international protection systems of minority rights. Due to the defects of the systems, there are some problems in international protection of minority rights. Thus, on the basis of the presentation and analysis of international protection systems of minority rights in the previous chapter, the fifth part selects some important ones and analyses the defects of them and approaches to rectification. These systems include: the State Parties Periodic Reporting System, the Inter-state Complaints Procedures, the Individual Communication Mechanisms, Universal Periodic Review, Early Warning Mechanisms and Judicial Protection and so on.The sixth chapter of the thesis emphasizes China’s practice in the protection of minority rights. After the discussion of major problems of international protection of minority rights and in accordance with international human rights conventions as well as China’s legislation, the last important point is to make an analysis of China’s practice in the protection of minority rights. Firstly, it makes the declaration that China’s ethnic minority groups constitute a very important part of minority in International Law, and then it proceeds to expatiate on historical background and basic system of China’s protection of the rights of ethnic minority groups, and last it analyses existing problems and management strategies. China has joined into 25 international human rights conventions and enthusiastically taken legislative, administrative and judicial measures to promote the protection of the rights of ethnic minority groups. With the improvement of legislation and enhancement of execution, China and international community will be hand in hand to make constant efforts to advance the healthy development and steady progress of China’s protection of the rights of ethnic minority groups as well as international human rights.The issue of the protection of minority rights is long-standing, comprehensive and profound. With the article 27 of ICCPR as the foundation, the thesis begins with the definition of minority and combines with cases to analyse aforesaid problems. The thesis holds the view that minority refers to:“the persons who have been living in a State for a certain period of time, in a non-dominant position, numerically on a certain scale but inferior to the rest of the population of the State, possess national, ethnic, religious or linguistic characteristics differing from those of the rest of the population and have a sense of solidarity directed towards preserving these characteristics.”Equal protection is far from enough for minority to enjoy their rights, so special protection should be guaranteed. Various measures should be taken to rectify the defects of international protection systems of minority rights though they provide system guarantee at some aspects. States should undertake the responsibility to protect minority rights but with the precondition of maintaining the unity of State and integrity of territory. China’s protection of ethnic minority groups has made a great achievement, but there is still some space to work on and China will work together with international community to promote the healthy development of minority rights protection and international human rights.更多还原