CCPR

CCPR

General comment No. 15:

第15号一般性意见：

The position of aliens under the Covenant

《公约》所规定的外侨地位

Twenty-seventh session (1986)

第二十七届会议(1986年)

1. Reports from States parties have often failed to take into account that each State party must ensure the rights in the Covenant to “all individuals within its territory and subject to its jurisdiction” (art.

1. 各缔约国的报告往往都没有顾及缔约国都必须保证“在其领土内和受其管辖的一切个人都”享有本公约所承认的权利(第二条第1款)。

2, para. 1). In general, the rights set forth in the Covenant apply to everyone, irrespective of reciprocity, and irrespective of his or her nationality or statelessness.

一般而言，《公约》所订各项权利适用于每个人，不论国家间对等原则，亦不论该个人的国籍或无国籍身份。

2. Thus, the general rule is that each one of the rights of the Covenant must be guaranteed without discrimination between citizens and aliens.

2. 因此，一般的规则是，必须确保《公约》内的每一项权利，而不区别对待公民和外侨。

Aliens receive the benefit of the general requirement of non-discrimination in respect of the rights guaranteed in the Covenant, as provided for in article 2 thereof.

如同第二条所规定的，外侨享有在《公约》所保证的权利方面的无歧视的一般规定的益处。

This guarantee applies to aliens and citizens alike.

此项保证同样适用于外侨和公民。

Exceptionally, some of the rights recognized in the Covenant are expressly applicable only to citizens (art. 25), while article 13 applies only to aliens.

例外的是，《公约》中有些权利已明文规定仅仅适用于公民(第二十五条)，而第十三条则仅适用于外侨。

However, the Committee’s experience in examining reports shows that in a number of countries other rights that aliens should enjoy under the Covenant are denied to them or are subject to limitations that cannot always be justified under the Covenant.

但是，委员会审查报告的经验却显示，在一些国家，外侨却享受不到按照《公约》所应享有的其他的权利，或受到通常都不符合《公约》的无理限制。

3. A few constitutions provide for equality of aliens with citizens.

3. 一些国家的宪法规定外侨和公民一律平等。

Some constitutions adopted more recently carefully distinguish fundamental rights that apply to all and those granted to citizens only, and deal with each in detail.

某些最近通过的宪法却详细地分别规定适用于一切人的基本权利和仅适用于公民的基本权利。

In many States, however, the constitutions are drafted in terms of citizens only when granting relevant rights.

然而，在某些国家，在起草宪法中的相关权利条款时都仅仅针对其公民。

Legislation and case law may also play an important part in providing for the rights of aliens.

成文法和判例法在规定外侨权利方面也发挥重要作用。

The Committee has been informed that in some States fundamental rights, though not guaranteed to aliens by the Constitution or other legislation, will also be extended to them as required by the Covenant.

委员会已得知，在某些国家，其宪法或其他法律虽然不保证外侨享有某些基本权利，可是本公约却规定他们应享有这些权利。

In certain cases, however, there has clearly been a failure to implement Covenant rights without discrimination in respect of aliens.

但是，有些国家显然没有实行《公约》所定不得歧视外侨的应享权利。

4. The Committee considers that in their reports States parties should give attention to the position of aliens, both under their law and in actual practice.

4. 委员会认为各缔约国在其报告内应该注意外侨的法定地位和实际地位。

The Covenant gives aliens all the protection regarding rights guaranteed therein, and its requirements should be observed by States parties in their legislation and in practice as appropriate.

《公约》已在内载的权利方面给予外侨一切保护；各缔约国在其立法上和实践上均应适当遵守《公约》的规定。

The position of aliens would thus be considerably improved.

这样才能大大改善外侨的地位。

States parties should ensure that the provisions of the Covenant and the rights under it are made known to aliens within their jurisdiction.

各缔约国均应确保在其管辖范围内的外侨都能够知道《公约》的条款和所规定的权利。

5. The Covenant does not recognize the right of aliens to enter or reside in the territory of a State party.

5. 《公约》不承认外国人有权进入某一缔约国的领土或在其境内居住。

It is in principle a matter for the State to decide who it will admit to its territory.

原则上，该国有权决定谁可以入境。

However, in certain circumstances an alien may enjoy the protection of the Covenant even in relation to entry or residence, for example, when considerations of non-discrimination, prohibition of inhuman treatment and respect for family life arise.

但是，在某些情况下，例如涉及不歧视、禁止非人道待遇和尊重家庭生活等考虑因素时，外国人甚至可以享有入境或居留方面的《公约》保护。

6. Consent for entry may be given subject to conditions relating, for example, to movement, residence and employment.

6. 入境许可的颁发必须符合有关诸如迁徙、居住和就业等事项的条件。

A State may also impose general conditions upon an alien who is in transit.

一个国家亦可对过境的外国人规定一般条件。

However, once aliens are allowed to enter the territory of a State party they are entitled to the rights set out in the Covenant.

但是，外国人一旦获准进入一个缔约国的领土，他们就有权享有《公约》所规定的各项权利。

7. Aliens thus have an inherent right to life, protected by law, and may not be arbitrarily deprived of life.

7. 因此，外侨应享有固有的生命权、法律保护以及生命不得被任意剥夺的权利。

They must not be subjected to torture or to cruel, inhuman or degrading treatment or punishment; nor may they be held in slavery or servitude.

他们不应受到酷刑或残忍、不人道或侮辱性的待遇或处罚；他们亦不应被迫为奴隶或被强迫役使。

Aliens have the full right to liberty and security of the person.

外侨享有充分的自由权利和人身安全。

If lawfully deprived of their liberty, they shall be treated with humanity and with respect for the inherent dignity of their person.

他们如果被合法地剥夺了自由，应该获得人道待遇，其固有的人身尊严应受尊重。

Aliens may not be imprisoned for failure to fulfil a contractual obligation.

外侨不因未履行合同义务而被监禁。

They have the right to liberty of movement and free choice of residence; they shall be free to leave the country.

他们有权自由迁徙、自由选择住所；他们有权自由离境。

Aliens shall be equal before the courts and tribunals, and shall be entitled to a fair and public hearing by a competent, independent and impartial tribunal established by law in the determination of any criminal charge or of rights and obligations in a suit at law.

外侨在法院和法庭内享有平等待遇，并且有权在依法设立的公正、超然的主管法庭中就任何刑事控诉或法律诉讼的权利和义务的确定问题进行公正的、公开的审讯。

Aliens shall not be subjected to retrospective penal legislation, and are entitled to recognition before the law.

外侨不应受到溯及既往的刑事立法的拘束，并且有权在法律上获得确认。

They may not be subjected to arbitrary or unlawful interference with their privacy, family, home or correspondence.

他们的隐私权、家庭、住屋或通信均不受任何任意的或非法的干涉。

They have the right to freedom of thought, conscience and religion, and the right to hold opinions and to express them.

他们有权享有思想自由、良心自由和宗教自由，并且有权保有意见和表达其意见。

Aliens receive the benefit of the right of peaceful assembly and of freedom of association.

外侨有权进行和平集会和结社。

They may marry when at marriageable age.

他们达到适婚年龄时可以结婚。

Their children are entitled to those measures of protection required by their status as minors.

他们的子女有权享有依未成年人资格所应享有的各种保护。

In those cases where aliens constitute a minority within the meaning of article 27, they shall not be denied the right, in community with other members of their group, to enjoy their own culture, to profess and practise their own religion and to use their own language.

如果外侨属于第二十七条所规定的少数者，他们应有权同其集团中的其他成员共同享有他们自己的文化并信奉和实行自己的宗教及使用自己的语文。

Aliens are entitled to equal protection by the law.

外侨有权享有平等的法律保障。

There shall be no discrimination between aliens and citizens in the application of these rights.

在实行这些权利方面，不应该区分外侨和公民。

These rights of aliens may be qualified only by such limitations as may be lawfully imposed under the Covenant.

只有按照《公约》合法实施的限制规定才能够限制外侨的这些权利。

8. Once an alien is lawfully within a territory, his freedom of movement within the territory and his right to leave that territory may only be restricted in accordance with article 12, paragraph 3.

8. 一旦外国人合法入境，就只能够按照第十二条第3款的规定来处理是否应限制他的境内迁徙自由和离开该国的权利。

Differences in treatment in this regard between aliens and nationals, or between different categories of aliens, need to be justified under article 12, paragraph 3.

有关外侨和本国人之间或不同种类的外侨之间在这方面的差别待遇必须符合第十二条第3款的规定。

Since such restrictions must, inter alia, be consistent with the other rights recognized in the Covenant, a State party cannot, by restraining an alien or deporting him to a third country, arbitrarily prevent his return to his own country (art. 12, para. 4).

因为这些限制尤其不应该影响到《公约》所承认的其他的权利，所以一个缔约国绝对不应该为了任意阻止一个外侨返回他的本国而扣留他或将他驱逐至某一第三国(第十二条第4款)。

9. Many reports have given insufficient information on matters relevant to article 13.

9. 许多报告中关于第十三条所涉各项问题的资料都很不够。

That article is applicable to all procedures aimed at the obligatory departure of an alien, whether described in national law as expulsion or otherwise.

本条适用于旨在强制外侨离境的一切程序，不论它是出于国内法所规定的驱逐出境或其他罪名。

If such procedures entail arrest, the safeguards of the Covenant relating to deprivation of liberty (arts. 9 and 10) may also be applicable.

如果此类程序导致逮捕，则亦可能应该适用《公约》中有关剥夺自由(第九和第十条)的保障条款。

If the arrest is for the particular purpose of extradition, other provisions of national and international law may apply.

如果逮捕的目的是特别为了引渡，则可能应该适用国内法和国际法的其他规定。

Normally an alien who is expelled must be allowed to leave for any country that agrees to take him.

通常都必须准许被驱逐的外侨前往同意收容他的任何一个国家。

The particular rights of article 13 only protect those aliens who are lawfully in the territory of a State party.

第十三条所规定的特别权利仅保护合法进入缔约国领土的外侨。

This means that national law concerning the requirements for entry and stay must be taken into account in determining the scope of that protection, and that illegal entrants and aliens who have stayed longer than the law or their permits allow, in particular, are not covered by its provisions.

这就是说，在确定此项保护的范畴时，必须考虑到有关入境和居留条件的国内法；居留超过法定期限或其入境许可所准许的居留期限的非法入境者和外侨尤其不受其条款的保护。

However, if the legality of an alien’s entry or stay is in dispute, any decision on this point leading to his expulsion or deportation ought to be taken in accordance with article 13.

但是，如果对某一外侨的入境或居留的合法性发生争议，那么，就必须按照第十三条的规定来作出有关涉及将他驱逐出境的此一争议的任何决定。

It is for the competent authorities of the State party, in good faith and in the exercise of their powers, to apply and interpret the domestic law, observing, however, such requirements under the Covenant as equality before the law (art. 26).

缔约国主管当局有义务依照善意原则行使其权力，以适用并解释国内法，但须遵守《公约》所规定的诸如在法律之前一律平等之类的规定(第二十六条)。

10. Article 13 directly regulates only the procedure and not the substantive grounds for expulsion.

10. 第十三条仅仅直接规定驱逐出境的程序，而非实质性理由。

However, by allowing only those carried out “in pursuance of a decision reached in accordance with law”, its purpose is clearly to prevent arbitrary expulsions.

但是，由于它规定只有“按照依法作出的决定”才可以被驱逐出境，所以它的宗旨显然是为了防止任意驱逐出境。

On the other hand, it entitles each alien to a decision in his own case and, hence, article 13 would not be satisfied with laws or decisions providing for collective or mass expulsions.

另外一方面，它规定外侨均有权就其案件得到一种判决；因此，第十三条就有容许关于集体或成批驱逐出境的法律或判决。

This understanding, in the opinion of the Committee, is confirmed by further provisions concerning the right to submit reasons against expulsion and to have the decision reviewed by and to be represented before the competent authority or someone designated by it.

委员会认为，此项了解可由下列的其他规定加以证实，即该条规定了提出反对驱逐出境的理由和使他的案件判决得到主管当局或由该当局所指定的人员进行复审，并为此目的而请人担任代表。

An alien must be given full facilities for pursuing his remedy against expulsion so that this right will in all the circumstances of his case be an effective one.

外侨必须能够获得有关寻求其反对驱逐出境的补救办法的充分的便利，以期有效行使他的全部诉讼权利。

The principles of article 13 relating to appeal against expulsion and the entitlement to review by a competent authority may only be departed from when “compelling reasons of national security” so require.

只有在遇有“国家安全的紧迫原因另有要求”的情况下，才可能不适用第十三条内有关反对驱逐出境的申诉权利和有关由主管当局进行复审的权利的原则。

Discrimination may not be made between different categories of aliens in the application of article 13.

在适用第十三条时，不得区别对待不同类别的外侨。