反恐新事态下国家立法的路径分析

An Analysis of the Route of the State Legislation under New Developments in Anti-Terrorism

如今,世界各国的反恐实践都面对着同样的反恐困境:即如何制定出一套既能保障人权,又能为反恐活动的有效展开提供必要空间的法律,而美国的"关塔那摩之困"即是这一困境的典型表现。为解决这一困境,各国采取了不同的反恐立法模式。当代主要的反恐立法路径有两条:传统路径遵循刑法基本理论,世界大多数国家的反恐立法多起源于此;新兴的路径则是以战争法为基础,以色列于2002年颁布的《非法战斗人员法》即是新兴反恐立法的典型代表。这一立法的颁布旨在解决以色列反恐困境中的两个棘手问题:一是恐怖分子的认定问题,二是对恐怖分子采取的预防性措施。该法增强了以色列反恐的预防性措施,又在一定程度上保障了恐怖分子的人权,从而使得反恐行动得以顺利进行。但这类立法在运用上仍然面临体系性和实践性的问题需要解决。因而,面对同样的反恐困境,我国的反恐立法应当吸收和借鉴两种反恐立法设计之优势,使反恐立法走向预防与惩治相结合的立法模式,并在反恐立法中融入新的立法原则,以促进反恐立法的有效实施。

Globally, the anti-terrorism practices are in the same dilemma: how to formulate a law that can protect human rights and provide the necessary space for the effective development of anti-terrorism activities." Guantanamo Dilemma"is a typical case. To solve this dilemma, different countries have adopted different anti-terrorism legislative models. currently, there are two major anti-terrorism legislative paths.One is the traditional one following the basic theory of criminal law. It is also the resources of the antiterrorism legislation of most countries. The emerging one is based on the law of war with the Law of Illegal Combatants promulgated by Israel in 2002 as a typical example. The enactment of this law aims to resolve two thorny issues in Israel's anti-terrorism dilemma: identification of terrorists and preventive measures against terrorists. The law has enhanced Israel's preventive measures against terrorism, and to a certain extent,safeguarded the human rights of terrorists, thus enabling the anti-terrorism actions to be carried out smoothly despite the systemic and practical problems. Confronted by the same anti-terrorism dilemma, China should absorb and draw on the advantages of the two designs to establish a legislative model combining prevention with punishment and incorporate new legislative principles into the anti-terrorism legislation so as to promote its implementation.