CCPR

CCPR

General comment No. 18:

第18号一般性意见：

Non-discrimination

不歧视

Thirty-seventh session (1989)

第三十七届会议(1989年)

1. Non-discrimination, together with equality before the law and equal protection of the law without any discrimination, constitute a basic and general principle relating to the protection of human rights.

1. 不歧视、法律面前平等以及法律的无差别的平等保护，是保护人权的基本而普遍的原则。

Thus, article 2, paragraph 1, of the International Covenant on Civil and Political Rights obligates each State party to respect and ensure to all persons within its territory and subject to its jurisdiction the rights recognized in the Covenant without distinction of any kind, such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status. Article 26 not only entitles all persons to equality before the law as well as equal protection of the law but also prohibits any discrimination under the law and guarantees to all persons equal and effective protection against discrimination on any ground such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.

因此，《公民权利和政治权利国际公约》的第二条第1款规定，每一缔约国应承担尊重和保证在其领土内和受其管辖的一切个人享有本《公约》所承认的权利，不分种族、肤色、性别、语言、宗教、政治或其他见解、国籍或社会出身、财产、出生或其他身份等任何区别、第二十六条不仅使所有人在法律面前平等，并有权受法律的平等保护，而且也禁止法律的任何歧视并保证所有的人得到平等的和有效的保护，以免受基于种族、肤色、性别、语言、宗教、政治或其他见解、国籍或社会出身、财产、出生或其他身份等任何理由的歧视。

2. Indeed, the principle of non-discrimination is so basic that article 3 obligates each State party to ensure the equal right of men and women to the enjoyment of the rights set forth in the Covenant.

2. 不歧视的原则确实非常基本，所以第三条规定，各缔约国应承担保证男子和妇女在享有《公约》所载一切公民和政治权利方面有平等的权利。

While article 4, paragraph 1, allows States parties to take measures derogating from certain obligations under the Covenant in time of public emergency, the same article requires, inter alia, that those measures should not involve discrimination solely on the ground of race, colour, sex, language, religion or social origin.

尽管第四条第一款允许缔约国在公共紧急状态下采取措施克减其在《公约》下所承担的义务，但是，该条特别规定这些措施不得包含纯粹基于种族、肤色、性别、语言、宗教或社会出身的理由的歧视。

Furthermore, article 20, paragraph 2, obligates States parties to prohibit, by law, any advocacy of national, racial or religious hatred which constitutes incitement to discrimination.

此外，第二十条第2款规定，缔约国应以法律禁止构成煽动歧视的任何鼓吹民族、种族或宗教仇恨的主张。

3. Because of their basic and general character, the principle of non-discrimination as well as that of equality before the law and equal protection of the law are sometimes expressly referred to in articles relating to particular categories of human rights.

3. 由于不歧视、法律面前平等以及法律的平等保护等原则具有基本和普遍性质，在谈到特定人权的条款中有时也明白加以引证。

Article 14, paragraph 1, provides that all persons shall be equal before the courts and tribunals, and paragraph 3 of the same article provides that, in the determination of any criminal charge against him, everyone shall be entitled, in full equality, to the minimum guarantees enumerated in subparagraphs (a) to (g) of paragraph 3.

第十四条第1款规定，所有人在法庭和裁判面前一律平等，并且同一条的第3款规定，在判定对他提出的任何刑事指控时，人人完全平等地有权享受第3款(甲)项至(庚)项所列的最低限度的保证。

Similarly, article 25 provides for the equal participation in public life of all citizens, without any of the distinctions mentioned in article 2.

同样，第二十五条规定，每个公民不受第二条所述区分的限制而平等地参加公共生活。

4. It is for the States parties to determine appropriate measures to implement the relevant provisions.

4. 缔约国可自行决定执行有关条款的适当措施。

However, the Committee is to be informed about the nature of such measures and their conformity with the principles of non-discrimination and equality before the law and equal protection of the law.

但是，应向委员会报告这类措施的性质以及它们是否符合不歧视、法律面前平等以及法律的平等保护等原则。

5. The Committee wishes to draw the attention of States parties to the fact that the Covenant sometimes expressly requires them to take measures to guarantee the equality of rights of the persons concerned.

5. 委员会谨提请缔约国注意，《公约》有时明白要求它们采取措施，保证有关人员的权利的平等。

For example, article 23, paragraph 4, stipulates that States parties shall take appropriate steps to ensure equality of rights as well as responsibilities of spouses as to marriage, during marriage and at its dissolution.

例如，第二十三条第4款规定，缔约国应采取适当步骤去保证缔婚双方在缔婚、结婚期间和解除婚约时的权利和责任平等。

Such steps may take the form of legislative, administrative or other measures, but it is a positive duty of States parties to make certain that spouses have equal rights as required by the Covenant.

这类步骤可采取立法、行政或其他措施为形式，但缔约国有积极义务确保缔婚双方如《公约》所规定的享有平等权利。

In relation to children, article 24 provides that all children, without any discrimination as to race, colour, sex, language, religion, national or social origin, property or birth, have the right to such measures of protection as are required by their status as minors, on the part of their family, society and the State.

对于儿童，第二十四条规定，儿童应有权享有家庭社会和国家为其未成年地位给予的必要保护措施，不因种族、肤色、性别、语言、宗教、国籍、或社会出身、财产或出生而受任何歧视。

6. The Committee notes that the Covenant neither defines the term “discrimination” nor indicates what constitutes discrimination.

6. 委员会注意到《公约》既未为“歧视”一词下定义，也未指明歧视的内容。

However, article 1 of the International Convention on the Elimination of All Forms of Racial Discrimination provides that the term “racial discrimination” shall mean any distinction, exclusion, restriction or preference based on race, colour, descent, or national or ethnic origin which has the purpose or effect of nullifying or impairing the recognition, enjoyment or exercise, on an equal footing, of human rights and fundamental freedoms in the political, economic, social, cultural or any other field of public life.

但是，《消除一切形式种族歧视国际公约》第一条规定，“种族歧视”是指基于种族、肤色、世系或民族或人种的任何区别、排斥、限制或优惠，其目的或效果为取消或损害在政治、经济、社会、文化或公共生活任何其他方面平等确认、享受或行使人权及基本自由。

Similarly, article 1 of the Convention on the Elimination of All Forms of Discrimination against Women provides that “discrimination against women” shall mean any distinction, exclusion or restriction made on the basis of sex which has the effect or purpose of impairing or nullifying the recognition, enjoyment or exercise by women, irrespective of their marital status, on a basis of equality of men and women, of human rights and fundamental freedoms in the political, economic, social, cultural, civil or any other field.

同样，《消除对妇女一切形式歧视公约》第一条规定，“对妇女的歧视”是指基于性别而作的任何区别、排斥或限制，其影响或其目的均足以妨碍或否认妇女不论已婚未婚在男女平等的基础上认识、享有或行使在政治、经济、社会、文化、公民或任何其他方面的人权和基本自由。

7. While these conventions deal only with cases of discrimination on specific grounds, the Committee believes that the term “discrimination” as used in the Covenant should be understood to imply any distinction, exclusion, restriction or preference which is based on any ground such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status, and which has the purpose or effect of nullifying or impairing the recognition, enjoyment or exercise by all persons, on an equal footing, of all rights and freedoms.

7. 尽管这些公约只适用于根据特定理由的歧视事件，委员会认为，《公约》中所用“歧视”一词的含义应指任何基于种族、肤色、性别、语言、宗教、政治或其他见解、国籍或社会出身、财产、出生或其他身份的任何区域、排斥、限制或优惠，其目的或效果为否认或妨碍任何人在平等的基础上认识、享有或行使一切权利和自由。

8. The enjoyment of rights and freedoms on an equal footing, however, does not mean identical treatment in every instance.

8. 但是，在平等的基础上享受权利和自由并不意味着在每一情况下的同等待遇。

In this connection, the provisions of the Covenant are explicit.

在此方面，《公约》有明文规定。

For example, article 6, paragraph 5, prohibits the death sentence from being imposed on persons below 18 years of age.

例如，第六条第5款禁止对18岁以下的人判处死刑。

The same paragraph prohibits that sentence from being carried out on pregnant women.

同一款禁止对孕妇执行死刑。

Similarly, article 10, paragraph 3, requires the segregation of juvenile offenders from adults.

同样，第十条第3款规定把少年罪犯与成年人隔离开。

Furthermore, article 25 guarantees certain political rights, differentiating on grounds of citizenship.

此外，第二十五条保证因公民身份而取得的某些政治权利。

9. Reports of many States parties contain information regarding legislative as well as administrative measures and court decisions which relate to protection against discrimination in law, but they very often lack information which would reveal discrimination in fact.

9. 许多缔约国的报告中载有关于防止歧视的法律保护的立法和行政措施以及法院裁决的资料，但常常缺乏揭露歧视事实的资料。

When reporting on articles 2 (1), 3 and 26 of the Covenant, States parties usually cite provisions of their constitution or equal opportunity laws with respect to equality of persons.

缔约国就《公约》第二条第1款、第三条和第二十条提出报告时，通常引证它们的宪法或机会均等法中关于人人平等的条款。

While such information is of course useful, the Committee wishes to know if there remain any problems of discrimination in fact, which may be practised either by public authorities, by the community, or by private persons or bodies.

这些资料固然有用，但委员会想了解的是是否存在任何实际歧视的问题，这种歧视可能是由公共机关、社区或私人或私人机构实行的。

The Committee wishes to be informed about legal provisions and administrative measures directed at diminishing or eliminating such discrimination.

委员会希望了解旨在减少或消除这种歧视的法律规定和行政措施。

10. The Committee also wishes to point out that the principle of equality sometimes requires States parties to take affirmative action in order to diminish or eliminate conditions which cause or help to perpetuate discrimination prohibited by the Covenant.

10. 委员会还希望指出，平等原则有时要求缔约国采取积极行动，以减少或消除会引起《公约》所禁止的歧视或使其持续下去的条件。

For example, in a State where the general conditions of a certain part of the population prevent or impair their enjoyment of human rights, the State should take specific action to correct those conditions.

例如，如果一国中某一部分人口的普遍状况阻碍或损害他们对人权的享受，国家应采取具体行动纠正这种状况。

Such action may involve granting for a time to the part of the population concerned certain preferential treatment in specific matters as compared with the rest of the population.

这种行动可包括在一般时间内给予有关部分人口在具体事务上某些比其他人口优惠的待遇。

However, as long as such action is needed to correct discrimination in fact, it is a case of legitimate differentiation under the Covenant.

但是，只要这种行动是纠正事实上的歧视所必要的，就是《公约》下的合法差别待遇。

11. Both article 2, paragraph 1, and article 26 enumerate grounds of discrimination such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.

11. 第二条第1款和第二十六条都列举了种族、肤色、性别、语言、宗教、政治或其他见解、国籍或社会出身、财产、出生或其他身份等歧视理由。

The Committee has observed that in a number of constitutions and laws not all the grounds on which discrimination is prohibited, as cited in article 2, paragraph 1, are enumerated.

委员会注意到，一些宪法和法律并未列举第二条第一款所述的禁止歧视的所有理由。

The Committee would therefore like to receive information from States parties as to the significance of such omissions.

因此，委员会希望从缔约国处获得有关这类遗漏的重要影响的资料。

12. While article 2 limits the scope of the rights to be protected against discrimination to those provided for in the Covenant, article 26 does not specify such limitations.

12. 尽管第二条把受到保护不歧视的各项权利限制在《公约》规定的范围内，第二十六条却未具体规定这种限制。

That is to say, article 26 provides that all persons are equal before the law and are entitled to equal protection of the law without discrimination, and that the law shall guarantee to all persons equal and effective protection against discrimination on any of the enumerated grounds.

这就是说，第二十六条规定，所有的人在法律面前平等，并有权受法律的平等保护，无所歧视，并且法律应保证所有的人得到平等和有效的保护，以免受基于任何所列原因的歧视。

In the view of the Committee, article 26 does not merely duplicate the guarantee already provided for in article 2 but provides in itself an autonomous right.

委员会认为，第二十六条并不仅仅重复第二条已经作出的保证，而是本身就规定了一项单独存在的权利。

It prohibits discrimination in law or in fact in any field regulated and protected by public authorities.

它禁止公共当局管理和保护的任何领域中法律上或事实上的歧视。

Article 26 is therefore concerned with the obligations imposed on States parties in regard to their legislation and the application thereof.

因此，第二十六条关心的是缔约国在立法及其应用方面承担的义务。

Thus, when legislation is adopted by a State party, it must comply with the requirement of article 26 that its content should not be discriminatory.

因此，当某一缔约国通过立法时，必须符合第二十六条的要求，其内容不应是歧视性的。

In other words, the application of the principle of non-discrimination contained in article 26 is not limited to those rights which are provided for in the Covenant.

换言之，第二十六条所载的非歧视原则不仅适用于《公约》规定的权利。

13. Finally, the Committee observes that not every differentiation of treatment will constitute discrimination, if the criteria for such differentiation are reasonable and objective and if the aim is to achieve a purpose which is legitimate under the Covenant.

13. 最后，委员会注意到，并非所有区别待遇都是歧视，只要这种区别的标准是合理和客观的，并且是为了达到根据《公约》视为合法的目的。