恐怖主义对难民保护的冲击与制衡规则

The Impact of Terrorism on Refugee Protection and Counterbalancing Norms

鉴于恐怖分子伪装为难民跨境流动并发动恐怖袭击的事件逐渐增多,越来越多的国家开始执行安理会第1373号决议中关于难民认定的恐怖主义例外规则,以预防恐怖分子进入本国。但这项规则在适用过程中存在被扩大解释之虞,导致部分本应受到难民保护的申请人可能会被认定为与恐怖主义存在关联进而被排除出难民保护的适用范围。为了在预防恐怖主义和保护难民间取得平衡,各国首先应认识到恐怖分子在难民中所占的比重非常小,难民在很多情况下是恐怖主义的受害者,即便是受恐怖人员暴力胁迫而为其提供帮助的平民也是如此;其次应厘清国家主权和国际人权保护的协调关系。基于这一认知,各国在适用恐怖主义例外规则时应严格解释相关术语,探寻其在国际法上自洽的含义,并将申请人畏惧遭受迫害的程度与恐怖主义行为的严重性进行衡量,确保符合相称性原则。这种做法背后的价值取向符合《关于难民地位的公约》兼顾保护难民的人道主义精神和维护国家利益的现实需求的目的和宗旨。

With the increase of terrorist attacks launched by terrorists disguised as refugees,more states begin to put into effect the rule of excluding terrorists from refugee status prescribed by S/RES/1373(2001)for preventing terrorism.However,there is concern that this rule would be interpreted broadly,so that some persecuted applicants might be identified as persons having a terrorist connection and excluded from refugee status.To keep balance between preventing terrorism and protecting refugees,states should first understand that terrorists only account for a small percentage of the population of refugees,and that applicants are,on many occasions,victims of terrorism,so are those coerced to assist terrorists.Then states are supposed to clarify the harmonious relationship between sovereignty and protection of human rights.On this basis,while applying the exclusion clause,states should restrictively interpret relevant terminologies,seek for the autonomous international meaning of the provision,and make sure the decision conforms to the principle of proportionality.This approach is consistent with the aim of the 1951 Refugee Convention-balancing the humanitarian spirit with the need of safeguarding national interests.