论难民不推回原则下国家安全例外条款的适用

On the Application of the National Security Exception Clause under the Refugee Non-refoulement Principle

难民不推回原则是国际难民保护制度的核心原则,保护难民与寻求庇护者的基本权利。不推回原则只禁止国家将难民推回到迫害者手中,并未创设肯定性的庇护难民义务。1951年《难民公约》第33条的国家安全例外条款赋予缔约国基于自身安全利益排除难民不推回原则适用的自由裁量权,试图通过弹性解释平衡难民保护和国家安全两方面利益。在难民危机爆发后,一些国家在实践中滥用安全例外条款,使之成为逃避不推回义务的工具。这反映了西方国际法话语下主权与人权两种不同取向的价值困境。国际社会应以新型国际关系理论为指导统一基于主权和人权不同价值取向的国家安全和难民保护目标,以法益衡量方法解释国家安全例外条款,使其适用符合合法性、非歧视性、比例原则以及正当程序的要求。国家利用公平及有效的难民身份甄别程序能更好地平衡国家安全和难民保护的关系。对此,中国应建立独立的难民甄别程序,完善难民保护立法,以加强我国国家安全和难民保护的治理能力。

The principle of non-refoulement of refugees is fundamental to the international refugee protection regime and protects the basic rights of refugees and asylum seekers.The principle of non-refoulement only prohibits States from returning refugees to their persecutors and does not create an affirmative obligation to asylum refugees.The national security exception in Article 33 of the 1951 Refugee Convention gives States parties discretion to exclude the application of the principle of non-refoulement to refugees based on their security interests,in an attempt to balance the interests of both refugee protection and national security through flexible interpretation.In the aftermath of the refugee crisis,some States have abused the security exception in practice,making it a tool for evading the non-refoulement obligation.It reflects the dilemma of the value of the two different orientations of sovereignty and human rights in the Western discourse of international law.The international community should be guided by the theory of A New Form of International Relations to unify the goals of national security and refugee protection based on the different values of sovereignty and human rights and to interpret the concept of national security in terms of the measure of legal interests so that its application complies with the requirements of legality,non-discrimination,proportionality,and due process.States are better able to balance national security and refugee protection through the use of fair and effective RSD procedures.In this regard,China should establish an independent RSD procedure and improve refugee protection legislation to strengthen its national security and refugee protection governance capacity.