CCPR

CCPR

General comment No. 23: Article 27 (Rights of minorities)

第23号一般性意见： 第二十七条(少数群体的权利)

Fiftieth session (1994)

第五十届会议(1994年)

1. Article 27 of the Covenant provides that, in those States in which ethnic, religious or linguistic minorities exist, persons belonging to these minorities shall not be denied the right, in community with the other members of their group, to enjoy their own culture, to profess and practise their own religion, or to use their own language.

1. 《公约》第二十七条规定，凡存在种族宗教或语言少数的国家，属于这种少数的人不应被剥夺了与同一群体的其他成员一起享受自己文化、信奉自己宗教、或使用自己语言的权利。

The Committee observes that this article establishes and recognizes a right which is conferred on individuals belonging to minority groups and which is distinct from, and additional to, all the other rights which, as individuals in common with everyone else, they are already entitled to enjoy under the Covenant.

委员会认为，这一条规定并确认了赋予属于少数群体的个人的权利，这种权利有别于、并且自外于、人人已经能够根据《公约》享受的一切其他权利。

2. In some communications submitted to the Committee under the Optional Protocol, the right protected under article 27 has been confused with the right of peoples to self-determination proclaimed in article 1 of the Covenant.

2. 在根据任择议定书提交委员会的一些来文中，受到第二十七条保护的权利与《公约》第一条中所宣示的人民自决权利混淆了。

Further, in reports submitted by States parties under article 40 of the Covenant, the obligations placed upon States parties under article 27 have sometimes been confused with their duty under article 2.1 to ensure the enjoyment of the rights guaranteed under the Covenant without discrimination and also with equality before the law and equal protection of the law under article 26.

此外，在缔约国根据《公约》第四十条提交的报告中，缔约国根据第二十七条应有的义务有时候也与它们根据第二条第一款确保人人丝毫不受歧视地享受在《公约》中得到保证的权利的责任互相混淆，也同第二十六条规定的人人在法律前平等并且受法律的平等保护的权利互相混淆。

3.1. The Covenant draws a distinction between the right to self-determination and the rights protected under article 27.

3.1. 《公约》区分了自决权利和第二十七条之下保护的权利。

The former is expressed to be a right belonging to peoples and is dealt with in a separate part (Part I) of the Covenant.

前者被表述为属于民族的权利，在《公约》的另一部分(第一部分)中作出规定。

Self-determination is not a right cognizable under the Optional Protocol.

自决并不是可依任择议定书予以确认的权利。

Article 27, on the other hand, relates to rights conferred on individuals as such and is included, like the articles relating to other personal rights conferred on individuals, in Part III of the Covenant and is cognizable under the Optional Protocol. {§1}

另一方面，第二十七条则涉及赋予个人的这类权利，并且同涉及给予个人的其他个人权利一样，载于《公约》的第三部分，并且能够在《公约》中予以确认。{§1}

3.2. The enjoyment of the rights to which article 27 relates does not prejudice the sovereignty and territorial integrity of a State party.

3.2. 第二十七条中所体现权利的享受不得违反缔约国的主权和领土完整。

At the same time, one or other aspect of the rights of individuals protected under that article - for example, to enjoy a particular culture - may consist in a way of life which is closely associated with territory and use of its resources. {§2}

同时，依照该条受到保护的权利的这个或那个方面――例如享受某一种特定文化――可能是同领土和资源的使用密切相关的一种生活方式。{§2}

This may particularly be true of members of indigenous communities constituting a minority.

对构成少数的土著社区成员来说，这一点可能特别真切。

4. The Covenant also distinguishes the rights protected under article 27 from the guarantees under articles 2.1 and 26.

4. 《公约》也区别依照第二十七条受到保护的权利和依第二条第1款和第二十六条得到的保证。

The entitlement, under article 2.1, to enjoy the rights under the Covenant without discrimination applies to all individuals within the territory or under the jurisdiction of the State whether or not those persons belong to a minority.

依照第二条第一款有权丝毫不受歧视地享受《公约》规定的情况适用于领土范围内或国家管辖范围内的所有个人，无论这些人是否属于少数群体。

In addition, there is a distinct right provided under article 26 for equality before the law, equal protection of the law, and non-discrimination in respect of rights granted and obligations imposed by the States.

此外，第二十六条规定了：人人在法律前平等、有权受法律的平等保护的情况在国家所给予的权利和所责成的义务上丝毫不受歧视。

It governs the exercise of all rights, whether protected under the Covenant or not, which the State party confers by law on individuals within its territory or under its jurisdiction, irrespective of whether they belong to the minorities specified in article 27 or not. {§3}

这一条制约着缔约国以法律赋予其境内或管辖范围内的个人的一切权利的行使――无论这些权利是否在《公约》下得到保护，也不论这些个人是否属于第二十七条中所指的少数群体。{§3}

Some States parties who claim that they do not discriminate on grounds of ethnicity, language or religion, wrongly contend, on that basis alone, that they have no minorities.

有些声称不基于种族、语言或宗教原因进行歧视的缔约国仅以这个论点为依据，错误地坚持认为它们没有任何少数群体。

5.1. The terms used in article 27 indicate that the persons designed to be protected are those who belong to a group and who share in common a culture, a religion and/or a language.

5.1. 第二十七条中的用语表明，所要保护的人是属于某一群体的人，这种人共同享有某种文化、宗教和/或某种语言。

Those terms also indicate that the individuals designed to be protected need not be citizens of the State party.

这些用语也表明，所要保护的个人不必是缔约国的公民。

In this regard, the obligations deriving from article 2.1 are also relevant, since a State party is required under that article to ensure that the rights protected under the Covenant are available to all individuals within its territory and subject to its jurisdiction, except rights which are expressly made to apply to citizens, for example, political rights under article 25.

在这方面，来源于第二条第一款的义务也是适切的，因为第二条责成缔约国确保在其境内或者在其管辖范围内的所有个人都能够根据《公约》享受受到保护的权利，但是第二十五条所规定的政治权利等明文规定只适用于公民的权利除外。

A State party may not, therefore, restrict the rights under article 27 to its citizens alone.

因此，缔约国不得限定第二十七条所规定的权利只适用于公民。

5.2. Article 27 confers rights on persons belonging to minorities which “exist” in a State party.

5.2 第二十七条赋予“存在于”缔约国内的、属于少数的人一些权利。

Given the nature and scope of the rights envisaged under that article, it is not relevant to determine the degree of permanence that the term “exist” connotes.

鉴于该条所设想的权利的性质和范围，确定“存在”一词所指的永久程度并不妥当。

Those rights simply are that individuals belonging to those minorities should not be denied the right, in community with members of their group, to enjoy their own culture, to practise their religion and speak their language.

这些权利只是，属于少数群体的个人不应该被剥夺了与他们的群体一起享受自己的文化、信奉自己的宗教和说自己的语言的权利。

Just as they need not be nationals or citizens, they need not be permanent residents.

正如同他们不必是国民或公民一样，他们也不必是永久居民。

Thus, migrant workers or even visitors in a State party constituting such minorities are entitled not to be denied the exercise of those rights.

因此，在缔约国内构成这种少数群体的移徙工人甚或游客行使上述权利的权利都是不容剥夺的。

As any other individual in the territory of the State party, they would, also for this purpose, have the general rights, for example, to freedom of association, of assembly, and of expression.

如同缔约国境内的任何其他个人一样，他们也为了这种目的拥有结社自由、集会自由、和言论自由、等普遍性权利。

The existence of an ethnic, religious or linguistic minority in a given State party does not depend upon a decision by that State party but requires to be established by objective criteria.

某一缔约国是否有在种族、宗教和语言上属于少数的人并不取决于该缔约国的决定，而是按照客观的标准予以确定的。

5.3. The right of individuals belonging to a linguistic minority to use their language among themselves, in private or in public, is distinct from other language rights protected under the Covenant.

5.3 在语言上属于少数的人在相互之间、私下、或公开、使用自己语言的权利有别于依照《公约》得到保护的其他语言权利。

In particular, it should be distinguished from the general right to freedom of expression protected under article 19.

尤其，它应该有别于依照第十九条享有得到保护的言论自由的普遍权利。

The latter right is available to all persons, irrespective of whether they belong to minorities or not.

所有的人都能够享有后一权利，不论他们是否属于少数群体。

Further, the right protected under article 27 should be distinguished from the particular right which article 14.3 (f) of the Covenant confers on accused persons to interpretation where they cannot understand or speak the language used in the courts.

此外，依照第二十七条得到保护的权利应该有别于公约第十四条第3款赋予被告的、对在法庭上使用的、他们不能懂或不能说的语言提供翻译的特定权利。

Article 14.3 (f) does not, in any other circumstances, confer on accused persons the right to use or speak the language of their choice in court proceedings. {§4}

在任何其他情形下，第十四条第3款都不给予被告在法庭诉讼中使用或说自己选择的语言的权利。{§4}

6.1. Although article 27 is expressed in negative terms, that article, nevertheless, does recognize the existence of a “right” and requires that it shall not be denied.

6.1 虽然第二十七条用否定的措辞方式表示，但该条并不确认有某种“权利”存在，而是规定，不应予以否定。

Consequently, a State party is under an obligation to ensure that the existence and the exercise of this right are protected against their denial or violation.

因此，缔约国有责任确保这种权利的存在和行使，使其不致受到否定和违反。

Positive measures of protection are, therefore, required not only against the acts of the State party itself, whether through its legislative, judicial or administrative authorities, but also against the acts of other persons within the State party.

因此需要采取的积极措施，不仅针对缔约国本身的行为――无论是通过其立法、司法或行政当局采取的行为，而且针对缔约国境内任何其他人的行为。

6.2. Although the rights protected under article 27 are individual rights, they depend in turn on the ability of the minority group to maintain its culture, language or religion.

6.2 虽然依照第二十七条受到保护的权利是个人的权利，它们又取决于少数人群体维持其文化、语言和宗教的能力。

Accordingly, positive measures by States may also be necessary to protect the identity of a minority and the rights of its members to enjoy and develop their culture and language and to practise their religion, in community with the other members of the group.

因此可能也有必要由国家采取积极的措施以保护少数人群体的特性以及其成员享受和发展自己的文化和语言并同群体内的其他成员一起信奉宗教的权利。

In this connection, it has to be observed that such positive measures must respect the provisions of articles 2.1 and 26 of the Covenant both as regards the treatment between different minorities and the treatment between the persons belonging to them and the remaining part of the population.

在这一点上，应该注意，上述措施必须在处理不同少数群体之间关系和处理少数群体成员与人口中其余部分之间关系上尊重公约第二条第一款和第二十六条的规定。

However, as long as those measures are aimed at correcting conditions which prevent or impair the enjoyment of the rights guaranteed under article 27, they may constitute a legitimate differentiation under the Covenant, provided that they are based on reasonable and objective criteria.

但是只要这些措施的目的是改正妨碍或损害对第二十七条所保证的权利的享受的状况，它们可能在公约下构成某种合法的区别，条件是这种区别必须以合理和客观的标准为基础。

7. With regard to the exercise of the cultural rights protected under article 27, the Committee observes that culture manifests itself in many forms, including a particular way of life associated with the use of land resources, especially in the case of indigenous peoples.

7. 关于第二十七条所保护的文化权利的行使，委员会认为，文化本身以多种形式表现出来，包括与土地资源的使用有联系的特定生活方式，土著人民的情况更是这样。

That right may include such traditional activities as fishing or hunting and the right to live in reserves protected by law. {§5}

这种权利可能包括渔猎等传统活动和受到法律保护的住在保留区内的权利。{§5}

The enjoyment of those rights may require positive legal measures of protection and measures to ensure the effective participation of members of minority communities in decisions which affect them.

为了享受上述权利，可能需要采取积极的法律保护措施和确保少数群体的成员切实参与涉及他们的决定。

8. The Committee observes that none of the rights protected under article 27 of the Covenant may be legitimately exercised in a manner or to an extent inconsistent with the other provisions of the Covenant.

8. 委员会认为，《公约》第二十七条所保护的权利的行使方式和范围均不得违反《公约》的其他规定。

9. The Committee concludes that article 27 relates to rights whose protection imposes specific obligations on States parties.

9. 委员会总结认为，第二十七条体现了缔约国具有特定义务加以保护的一些权利。

The protection of these rights is directed towards ensuring the survival and continued development of the cultural, religious and social identity of the minorities concerned, thus enriching the fabric of society as a whole.

保护这些权利的目的是要确保有关少数群体的文化、宗教和社会特性得以存活和持续发展，从而加强整个社会的结构。

Accordingly, the Committee observes that these rights must be protected as such and should not be confused with other personal rights conferred on one and all under the Covenant.

因此，委员会认为，这些权利应该以上述方式予以保护，而不应该同依照《公约》赋予一个人和所有人的其他人身权利混淆起来。

States parties, therefore, have an obligation to ensure that the exercise of these rights is fully protected and they should indicate in their reports the measures they have adopted to this end.

因此缔约国有义务确保这些权利的行使得到充分的保护，缔约国应该在提交的报告中说明为此目的采取了哪些措施。

Notes

注

{§1}See Official Records of the General Assembly, Thirty-ninth Session, Supplement No. 40 (A/39/40), annex VI, general comment No. 12 (21) (art. 1), also issued in document CCPR/C/21/Rev.1; ibid., Forty-fifth Session, Supplement No. 40, (A/45/40, vol. II, annex IX, section A, communication No. 167/1984 (Bernard Ominayak, Chief of the Lubicon Lake Band v. Canada), views adopted on 26 March 1990.

{§1}见《大会正式纪录，第三十九届会议，补编第40号》，(A/39/40)，附件六，一般性意见第12(21)号(第一条)，也载于CCPR/C/21/Rev.1号文件印发；《同上，第四十五届会议，补编第40号》，(A/45/40)，第二卷，附件四，A节，第167/1984号来文(BER-NARD OMINAYAK, CHIEF OF THE LUBICON LAKE BAND诉加拿大)，1990年3月26日通过的意见。

{§2}See ibid., Forty-third Session, Supplement No. 40 (A/43/40), annex VII, section G, communication No. 197/1985 (Kitok v. Sweden), views adopted on 27 July 1988.

{§2}见同上，《第四十三届会议，补编第40号》，(A/43/40)，附件七，G节，第197/1985号来文(KITOK诉瑞典)，1988年7月27日通过的意见。

{§3}See ibid., Forty-second Session, Supplement No. 40 (A/42/40), annex VIII, section D, communication No. 182/1984 (F.H. Zwaan-de Vries v. the Netherlands), views adopted on 9 April 1987; ibid., section C, communication No. 180/1984 (L.G. Danning v. the Netherlands), views adopted on 9 April 1987.

{§3}见同上，《第四十二届会议，补编第40号》，(A/42/40)，附件八，D节，第182/1984号来文(F.H.ZWAAN-DE VRIES诉荷兰)，1987年4月9日通过的意见；同上，C节，第180/1984号来文(L.G.DANNING诉荷兰)，1987年4月9日通过的意见。

{§4}See ibid., Forty-fifth Session, Supplement No. 40, (A/45/40), volume II, annex X, section A, communication No. 220/1987 (T.K. v. France), decision of 8 November 1989; ibid., section B, communication No. 222/1987 (M.K. v. France), decision of 8 November 1989.

{§4}见同上，《第四十五届会议，补编第40号》，(A/45/40)，第二卷，附件十，A节，第220/1987号来文(T.K.诉法国)，1989年11月8日通过的决定；同上，B节，第222/1987号来文(M.K.诉法国)，1989年11月8日通过的决定。

{§5}See notes 1 and 2 above, communication No. 167/1984 (Bernard Ominayak, Chief of the Lubicon Lake Band v. Canada), views adopted on 26 March 1990, and communication No. 197/1985 (Kitok v. Sweden), views adopted on 27 July 1988.

{§5}见以上注1和注2,第167/1984号来文(BERNARD OMINAYAK, CHIEF OF THELUBICON LAKE BAND诉加拿大)，1990年3月26日通过的意见和第197/1985号来文(KITOK诉瑞典)，1988年7月27日通过的意见。