联合国与区域组织在实施定向制裁中相互关系探析

An Analysis of the Relationship between the United Nations and Regional Organizations in the Implementation of Targeted Sanctions

直接针对政策制定者和利益相关方的定向制裁,可以与外交、调停、武力威胁等政策工具结合使用,较为灵活,便于调整,也不会引发大范围的人道主义灾难。通过金融制裁、资产冻结、旅行禁令和武器禁运等措施,定向制裁可以达到胁迫制裁对象改变行为、限制制裁对象活动能力和向国际社会传递信号的目的。2 0世纪90年代以来,联合国和区域组织实施的制裁都属于定向制裁。虽然在官方文件中联合国和区域组织并未就如何共同实施制裁作出清晰说明,却在制裁实践中磨合出了互为辅助的关系,通常以合作、协调和配合三种模式共同实施制裁。两者在定向制裁实践中,制裁目的相同且目标兼容,决策相互独立却行动配合紧密,措施扬长避短,责任分工有序。联合国和欧盟共同制裁伊朗的案例,充分体现了上述特点。联合国和区域组织之所以在制裁实践中磨合出互为辅助关系的原因在于全球治理机制的碎片化和区域组织的发展,联合国的全球合法性与区域组织的有效执行力互为支持,能有效地维护国际秩序的稳定。

Targeted sanctions are an improved version of sanctions that directly target elite interests and specific individuals. Flexible and amenable to adjustments, they can be combined with other policy instruments, and are not likely to cause widespread humanitarian damage. Using tools such as financial sanctions, asset freezes, travel bans and arms embargoes, targeted sanctions can achieve the purpose of coercing targets into changing their behaviors, limiting the ability of targets, and sending messages to the international community.Since the 1990 s, sanctions imposed by the United Nations and regional organizations have been targeted sanctions. Although the UN and regional organizations have no official written guidelines on how to jointly implement sanctions, they have developed a mutually supportive relationship in the practice of sanctions, usually in the form of cooperation, coordination and assistance. Since their objectives are the same or compatible, the UN and regional organizations can coordinate their actions although they make decisions independently. They can complement each other by developing an orderly division of labor. The case of the UN and the EU jointly sanctioning Iran fully reflects the above characteristics. The reason why the UN and regional organizations are mutually reinforcing in the practice of sanctions lies in the fragmentation of global governance mechanisms and the development of regional organizations. The global legitimacy of the United Nations and the effective implementation of regional organizations complement each other and can effectively maintain the stability of the international order.