仇恨言论的国际法规制——以《公民及政治权利国际公约》第20条第2款为中心

International Legal Regulation of Hate Speech——Focused on Article 20(2)of the International Covenant on Civil and Political Rights

仇恨言论是人类社会中普遍、长久存在的一个丑恶现象。联合国一直高度重视规制仇恨言论,其主要法律基础是《公民及政治权利国际公约》第20条第2款。第20条第2款规定的不是个人的权利,而是国家的义务,即以法律禁止构成煽动歧视、敌视或强暴的对民族、种族或宗教仇恨的任何鼓吹。国家根据第20条第2款禁止仇恨言论需要满足第19条第3款为限制表达自由设定的条件。对于第20条第2款中的诸项要素,即鼓吹民族、种族或宗教仇恨,煽动歧视、敌视或强暴以及以法律禁止,人权事务委员会和表达自由特别报告员均作了详细分析。第20条第2款只能用来禁止构成煽动歧视、敌视或强暴的仇恨言论,对于没有达到这一门槛的仇恨言论,国家需要采取包括教育在内的其他措施来应对。

Hate speech is an evil phenomenon that has been prevalent and long-lasting in human society.The United Nations has been highly concerned with the regulation of hate speech,with Article 20,paragraph 2,of the International Covenant on Civil and Political Rights as its main legal basis.Article 20(2)does not provide for the rights of individuals,but the obligation of States to prohibit any advocacy of national,racial or religious hatred that constitutes incitement to discrimination,hostility or violence by law.The states’prohibition of hate speech in accordance with Article 20(2)needs to comply with the conditions required by Article 19(3)for restricting the freedom of expression.The Human Rights Committee and the Special Rapporteur on the Freedom of Expression have elaborated the elements of Article 20(2),namely advocacy,national,racial or religious hatred,incitement to discrimination,hostility or violence and prohibition by law.Article 20(2)may only be used to prohibit hate speech that constitutes incitement to discrimination,hostility or violence.For hate speech that does not meet this threshold,states need to take other measures,including educational measures,to deal with.