CCPR

CCPR

General comment No. 25:

第25号一般性意见：

Article 25 (Participation in public affairs and the right to vote)

第二十五条(参与公共生活和投票的权利)

Fifty-seventh session (1996) {§1} {§2}

第五十七届会议(1996年) {§1} {§2}

1. Article 25 of the Covenant recognizes and protects the right of every citizen to take part in the conduct of public affairs, the right to vote and to be elected and the right to have access to public service.

1. 《公约》第二十五条承认并保护每个公民参与公共事务的权利、选举和被选举权利和参加公务的权利。

Whatever form of constitution or government is in force, the Covenant requires States to adopt such legislative and other measures as may be necessary to ensure that citizens have an effective opportunity to enjoy the rights it protects.

无论现行宪法或政府采取何种形式，《公约》要求各国通过必要的立法和其他措施，确保公民具有有效的机会，享受《公约》保护的权利。

Article 25 lies at the core of democratic government based on the consent of the people and in conformity with the principles of the Covenant.

第二十五条是基于人民的同意和符合《公约》原则的民主政府的核心。

2. The rights under article 25 are related to, but distinct from, the right of peoples to self-determination.

2. 第二十五条规定的权利涉及到有别于人民自决权。

By virtue of the rights covered by article 1 (1), peoples have the right to freely determine their political status and to enjoy the right to choose the form of their constitution or government.

根据第一条第1款所载权利，人民有权自由确定其政治地位，享有选择其宪法或政府的形式的权利。

Article 25 deals with the right of individuals to participate in those processes which constitute the conduct of public affairs.

第二十五条涉及到个人参与构成公共事务的这些程序的权利。 这些权利作为个人权利。

Those rights, as individual rights, can give rise to claims under the first Optional Protocol.

可以据此根据第一项《任择议定书》提出的申请。

3. In contrast with other rights and freedoms recognized by the Covenant (which are ensured to all individuals within the territory and subject to the jurisdiction of the State), article 25 protects the rights of “every citizen”.

3. 第二十五条保护“每个公民”的权利，这与《公约》承认的其他权利和自由不一样(后者保证缔约国领土内并受其管辖的所有个人享有这些权利)。

State reports should outline the legal provisions which define citizenship in the context of the rights protected by article 25.

缔约国报告应该阐明根据第二十五条保护的权利界定公民资格的法律规定。

No distinctions are permitted between citizens in the enjoyment of these rights on the grounds of race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.

公民在享受这些权利方面，不得受到基于种族、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。

Distinctions between those who are entitled to citizenship by birth and those who acquire it by naturalization may raise questions of compatibility with article 25.

在以出生而获得公民资格的人与通过入籍而获得公民资格的人之间进行区别会引起是否违反第二十五条的问题。

State reports should indicate whether any groups, such as permanent residents, enjoy these rights on a limited basis, for example, by having the right to vote in local elections or to hold particular public service positions.

缔约国报告应该说明是否有任何群体如永久居民在享有这些权利，例如有权在当地选举中投票或担任特定公职方面受到限制。

4. Any conditions which apply to the exercise of the rights protected by article 25 should be based on objective and reasonable criteria.

4. 对行使第二十五条保护的权利规定的任何条件应以客观和合理标准为基础。

For example, it may be reasonable to require a higher age for election or appointment to particular offices than for exercising the right to vote, which should be available to every adult citizen.

例如，规定经选举担任或任命特定职位的年龄应高于每个成年公民可行使投票权的年龄是合理的。

The exercise of these rights by citizens may not be suspended or excluded except on grounds which are established by law and which are objective and reasonable.

不得中止或排除公民对这些权利的行使，除非基于法律规定并属于客观和合理的理由。

For example, established mental incapacity may be a ground for denying a person the right to vote or to hold office.

例如，公认的智能丧失可以构成剥夺某人行使投票权或担任公职权利的理由。

5. The conduct of public affairs, referred to in paragraph (a), is a broad concept which relates to the exercise of political power, in particular the exercise of legislative, executive and administrative powers.

5. (甲)项提到的公共事务是一个广泛的概念，涉及到行使政治权力，特别是行使立法、行政和管理权力。

It covers all aspects of public administration, and the formulation and implementation of policy at international, national, regional and local levels.

它包括公共行政的各个方面和国际、国家、区域和地方各级政策的拟定和执行。

The allocation of powers and the means by which individual citizens exercise the right to participate in the conduct of public affairs protected by article 25 should be established by the constitution and other laws.

权力的分配和个人公民行使受第二十五条保护的参与公共事务的权利的途径应由宪法和其他法律规定。

6. Citizens participate directly in the conduct of public affairs when they exercise power as members of legislative bodies or by holding executive office.

6. 当公民作为立法机构的成员或因担任行政职务而行使权力时，他们直接参与公共事务。

This right of direct participation is supported by paragraph (b).

这种直接参与的权利得到(乙)项的支持。

Citizens also participate directly in the conduct of public affairs when they choose or change their constitution or decide public issues through a referendum or other electoral process conducted in accordance with paragraph (b).

公民还通过公民投票或根据(乙)项进行的其他选举程序选择或修改其宪法或决定公共问题来直接参与公共事务。

Citizens may participate directly by taking part in popular assemblies which have the power to make decisions about local issues or about the affairs of a particular community and in bodies established to represent citizens in consultation with government.

公民可通过下列途径实现直接参与权：参加人民议会，这些议会有权就当地问题或特定社区的事务作出决定；参加代表公民与政府进行协商的机构。

Where a mode of direct participation by citizens is established, no distinction should be made between citizens as regards their participation on the grounds mentioned in article 2, paragraph 1, and no unreasonable restrictions should be imposed.

公民直接参与的方式一经确立，就不得根据第二条第1款提到的理由就公民的参与进行区别，也不得强加任何无理的限制。

7. Where citizens participate in the conduct of public affairs through freely chosen representatives, it is implicit in article 25 that those representatives do in fact exercise governmental power and that they are accountable through the electoral process for their exercise of that power.

7. 就公民通过自由选择的代表参与公共事务而言，第二十五条暗示这些代表实际上行使政府权力，他们通过选举程序对这一权力的行使负责。

It is also implicit that the representatives exercise only those powers which are allocated to them in accordance with constitutional provisions.

该条还暗示代表仅行使根据宪法规定授予他们的权力。

Participation through freely chosen representatives is exercised through voting processes which must be established by laws that are in accordance with paragraph (b).

经自由选择的代表的参与权利通过选举程序行使，这些进程必须由符合(乙)项的法律加以规定。

8. Citizens also take part in the conduct of public affairs by exerting influence through public debate and dialogue with their representatives or through their capacity to organize themselves.

8. 公民还通过与其代表公开辩论和对话或通过他们组织自己的能力来施加影响而参与公共事务。

This participation is supported by ensuring freedom of expression, assembly and association.

保障言论、集会和结社自由可支持这种参与。

9. Paragraph (b) of article 25 sets out specific provisions dealing with the right of citizens to take part in the conduct of public affairs as voters or as candidates for election.

9. 第二十五条(乙)项列出了公民作为选举人或候选人参加公共事务的权利的具体规定。

Genuine periodic elections in accordance with paragraph (b) are essential to ensure the accountability of representatives for the exercise of the legislative or executive powers vested in them.

根据(乙)项定期举行真正的选举至关重要，有助于确保代表对行使授予他们的立法权或行政权负责。

Such elections must be held at intervals which are not unduly long and which ensure that the authority of government continues to be based on the free expression of the will of electors.

举行这种选举的间隔期不得过长，以保证政府的职权的基础仍然是选民自由表达的意愿。

The rights and obligations provided for in paragraph (b) should be guaranteed by law.

(乙)项规定的权利和义务应得到法律保障。

10. The right to vote at elections and referendums must be established by law and may be subject only to reasonable restrictions, such as setting a minimum age limit for the right to vote.

10. 投票权和公民投票权必须由法律规定，仅受合理的限制，如为投票权规定的最低年龄限制。

It is unreasonable to restrict the right to vote on the ground of physical disability or to impose literacy, educational or property requirements.

以身体残疾为由或强加识字、教育或财产要求来限制选举权都是不合理的。

Party membership should not be a condition of eligibility to vote, nor a ground of disqualification.

是否是党员不得作为投票资格的条件，也不得作为取消资格的理由。

11. States must take effective measures to ensure that all persons entitled to vote are able to exercise that right.

11. 国家必须采取有效措施，保证有投票权的所有人能行使这项权利。

Where registration of voters is required, it should be facilitated and obstacles to such registration should not be imposed.

在规定选举人必须登记的情况下，应该提供便利，不得对这种登记施加任何障碍。

If residence requirements apply to registration, they must be reasonable, and should not be imposed in such a way as to exclude the homeless from the right to vote.

如果对登记实行居住规定，规定必须合理，不得以排除无家可归者行使投票权的方式强行这种要求。

Any abusive interference with registration or voting as well as intimidation or coercion of voters should be prohibited by penal laws and those laws should be strictly enforced.

刑法应禁止对登记或投票的任何侵权性干涉以及对投票人进行恫吓或胁迫。 应该严格执行这些法律。

Voter education and registration campaigns are necessary to ensure the effective exercise of article 25 rights by an informed community.

为确保知情社区有效行使第二十五条规定的权利，必须对投票人进行教育并开展登记运动。

12. Freedom of expression, assembly and association are essential conditions for the effective exercise of the right to vote and must be fully protected.

12. 言论、集会和结社自由也是有效行使投票权的重要条件，必须受到充分保护。

Positive measures should be taken to overcome specific difficulties, such as illiteracy, language barriers, poverty, or impediments to freedom of movement which prevent persons entitled to vote from exercising their rights effectively.

应该采取积极措施，克服具体困难，如文盲、语言障碍、贫困和妨碍迁徙自由等障碍，所有这一切均阻碍有投票权的人有效行使他们的权利。

Information and materials about voting should be available in minority languages.

应该用少数人的语言发表有关投票的信息和材料。

Specific methods, such as photographs and symbols, should be adopted to ensure that illiterate voters have adequate information on which to base their choice.

应该采取具体办法，如图片和标记来确保文盲投票人在作出其选择之前获得充分的信息。

States parties should indicate in their reports the manner in which the difficulties highlighted in this paragraph are dealt with.

缔约国应该在其报告中说明它们解决本段所述困难的方式。

13. State reports should describe the rules governing the right to vote, and the application of those rules in the period covered by the report.

13. 缔约国报告应该阐述有关投票权的规则和报告所涉期间这些规则的适用情况。

State reports should also describe factors which impede citizens from exercising the right to vote and the positive measures which have been adopted to overcome these factors.

报告也应该说明阻碍公民行使投票权的因素和为克服这些因素而采取的积极措施。

14. In their reports, States parties should indicate and explain the legislative provisions which would deprive citizens of their right to vote.

14. 缔约国应该在其报告中说明和解释剥夺公民投票权的法律规定。

The grounds for such deprivation should be objective and reasonable.

剥夺这种权利的理由应该客观合理。

If conviction for an offence is a basis for suspending the right to vote, the period of such suspension should be proportionate to the offence and the sentence.

如果因某一罪行而被判罪是丧失投票权的依据，丧失投票权的期限应该与所犯罪行和刑期相称。

Persons who are deprived of liberty but who have not been convicted should not be excluded from exercising the right to vote.

被剥夺自由但没有被判罪的人应有权行使投票权。

15. The effective implementation of the right and the opportunity to stand for elective office ensures that persons entitled to vote have a free choice of candidates.

15. 有效落实竞选担任经选举产生的职位的权利和机会有助于确保享有投票权的人自由挑选候选人。

Any restrictions on the right to stand for election, such as minimum age, must be justifiable on objective and reasonable criteria.

对竞选权施加任何限制，如最低年龄，必须以客观合理标准为依据。

Persons who are otherwise eligible to stand for election should not be excluded by unreasonable or discriminatory requirements such as education, residence or descent, or by reason of political affiliation.

不得以无理或歧视要求如教育、居住或出身或政治派别等理由来排除本来有资格竞选的人参加竞选。

No person should suffer discrimination or disadvantage of any kind because of that person’s candidacy.

任何人不得因为是候选人而遭受任何歧视或不利条件。

States parties should indicate and explain the legislative provisions which exclude any group or category of persons from elective office.

缔约国应该说明和解释排除任何群体或任一类人担任经选举产生的职位的立法规定。

16. Conditions relating to nomination dates, fees or deposits should be reasonable and not discriminatory.

16. 与提名日期、费用或交存有关的条件应合理，不得有歧视性。

If there are reasonable grounds for regarding certain elective offices as incompatible with tenure of specific positions (e.g. the judiciary, high-ranking military office, public service), measures to avoid any conflicts of interest should not unduly limit the rights protected by paragraph (b).

如果有合理的根据认为某些选举产生的职位与担任具体职务相抵触(如司法部门、高级军官、公务员)，为避免任何利益冲突而采取的措施不应该不当地限制(乙)项所保护的权利。

The grounds for the removal of elected office holders should be established by laws based on objective and reasonable criteria and incorporating fair procedures.

解除选举产生的职位的理由应该由法律根据客观和合理标准加以规定，并包含公正程序。

17. The right of persons to stand for election should not be limited unreasonably by requiring candidates to be members of parties or of specific parties.

17. 个人的竞选权不应该受到要求候选人应是某政党党员或具体政党的党员的无理限制。

If a candidate is required to have a minimum number of supporters for nomination this requirement should be reasonable and not act as a barrier to candidacy.

如果要求候选人有起码数量的支持者才能获得提名，该项要求应该合理，不得构成当候选人的障碍。

Without prejudice to paragraph (1) of article 5 of the Covenant, political opinion may not be used as a ground to deprive any person of the right to stand for election.

在不妨碍《公约》第五条第1款的情况下，不得以政治见解为由剥夺任何人参加竞选的权利。

18. State reports should describe the legal provisions which establish the conditions for holding elective public office, and any limitations and qualifications which apply to particular offices.

18. 缔约国报告应该介绍规定举行公共职务选举的条件的法律规定和适用特定职务的任何限制和条件。

Reports should describe conditions for nomination, e.g. age limits, and any other qualifications or restrictions.

报告应该阐述提名条件，如年龄限制，和任何其他条件或限制。

State reports should indicate whether there are restrictions which preclude persons in public-service positions (including positions in the police or armed services) from being elected to particular public offices.

缔约国报告应该说明是否有排除担任公务员职务的人(包括在警察或武装部门的职务)被选举担任特定公职的限制。

The legal grounds and procedures for the removal of elected office holders should be described.

报告应该阐述解除担任经选举产生的职务的法律理由和程序。

19. In conformity with paragraph (b), elections must be conducted fairly and freely on a periodic basis within a framework of laws guaranteeing the effective exercise of voting rights.

19. 根据(乙)项，选举必须定期、公平和自由举行，不脱离确保有效行使投票权的法律框架。

Persons entitled to vote must be free to vote for any candidate for election and for or against any proposal submitted to referendum or plebiscite, and free to support or to oppose government, without undue influence or coercion of any kind which may distort or inhibit the free expression of the elector’s will.

有投票权的人必须能自由投任何候选人的票，赞成或反对提交公民投票的任何提案，自由支持或反对政府而不受可能扭曲或限止自由表达投票人意愿的任何类型的不当影响或压力。

Voters should be able to form opinions independently, free of violence or threat of violence, compulsion, inducement or manipulative interference of any kind.

投票人应该可以独立形成见解，不受任何类型的暴力或暴力威胁、强迫、引诱或操纵影响。

Reasonable limitations on campaign expenditure may be justified where this is necessary to ensure that the free choice of voters is not undermined or the democratic process distorted by the disproportionate expenditure on behalf of any candidate or party.

对竞选开支进行合理限制也许无可非议，只要这样做是为了确保投票人的自由选择或民主程序不受任何一位候选人或政党不成比例开支的破坏或歪曲之所必需的。

The results of genuine elections should be respected and implemented.

应该尊重和执行真正选择的结果。

20. An independent electoral authority should be established to supervise the electoral process and to ensure that it is conducted fairly, impartially and in accordance with established laws which are compatible with the Covenant.

20. 应该成立独立的选务当局，监督选举程序以及确保选举以公平、不偏不倚的方式和根据与《公约》相一致的既定法律进行。

States should take measures to guarantee the requirement of the secrecy of the vote during elections, including absentee voting, where such a system exists.

国家应采取措施，保证举行期间投票保密的要求，并在有缺席投票制度的情况，也对其进行保密。

This implies that voters should be protected from any form of coercion or compulsion to disclose how they intend to vote or how they voted, and from any unlawful or arbitrary interference with the voting process.

这意味着应该保护投票人不受任何形式的胁迫或压力，以免透露他们打算如何投票或投了谁的票，以及避免投票进程受到任何非法或任意干涉。

Waiver of these rights is incompatible with article 25 of the Covenant.

撤销这些权利即违反《公约》第二十五条。

The security of ballot boxes must be guaranteed and votes should be counted in the presence of the candidates or their agents.

投票箱的安全必须得到保证，清点选票时应有候选人或其代理在场。

There should be independent scrutiny of the voting and counting process and access to judicial review or other equivalent process so that electors have confidence in the security of the ballot and the counting of the votes.

应制订投票和记票方法的独立审查程序以及司法审查或其他相当的程序，以便选举人能相信投票的安全和选票的统计。

Assistance provided to the disabled, blind or illiterate should be independent.

给残疾人、盲人或文盲提供的协助应独立。

Electors should be fully informed of these guarantees.

应该向选举人充分介绍这些保障。

21. Although the Covenant does not impose any particular electoral system, any system operating in a State party must be compatible with the rights protected by article 25 and must guarantee and give effect to the free expression of the will of the electors.

21. 尽管《公约》不强迫实行任何特定选举制度，但缔约国实行的任何选举制度必须与第二十五条保护的权利相符，并必须保证和落实选举人自由表达的意愿。

The principle of one person, one vote, must apply, and within the framework of each State’s electoral system, the vote of one elector should be equal to the vote of another.

必须执行一人一票的原则，在每一国家选举制度的框架内，投票人所投下的票应一律平等。

The drawing of electoral boundaries and the method of allocating votes should not distort the distribution of voters or discriminate against any group and should not exclude or restrict unreasonably the right of citizens to choose their representatives freely.

划分选区和分配选票的办法不应该歪曲投票人的分配或歧视任何群体，不应该无理排除或限制公民自由选择其代表的权利。

22. State reports should indicate what measures they have adopted to guarantee genuine, free and periodic elections and how their electoral system or systems guarantee and give effect to the free expression of the will of the electors.

22. 缔约国报告应该说明为了保证真正、自由和定期选举，它们采取了何种措施，它们的选举制度是如何保证和落实投票人自由表达的意志的。

Reports should describe the electoral system and explain how the different political views in the community are represented in elected bodies.

报告应该阐述选举制度和解释社区中的不同政治见解如何体现在选出的机构中。

Reports should also describe the laws and procedures which ensure that the right to vote can in fact be freely exercised by all citizens and indicate how the secrecy, security and validity of the voting process are guaranteed by law.

报告也应该阐述确保所有公民实际上能够自由行使投票权的法律和程序，并说明法律如何保证选举程序的保密、安全和可靠。

The practical implementation of these guarantees in the period covered by the report should be explained.

报告应该解释所涉期间这些保障的实际落实情况。

23. Subparagraph (c) of article 25 deals with the right and the opportunity of citizens to have access on general terms of equality to public service positions.

23. 第二十五条(丙)项涉及到公民在一般的平等的条件下担任公职的权利和机会。

To ensure access on general terms of equality, the criteria and processes for appointment, promotion, suspension and dismissal must be objective and reasonable.

为了保证在一般的平等的条件下的机会，任命、晋升、停职和解职的标准和程序必须客观和合理。

Affirmative measures may be taken in appropriate cases to ensure that there is equal access to public service for all citizens.

在适当情况下不妨采取积极措施，确保所有公民可平等担任公职。

Basing access to public service on equal opportunity and general principles of merit, and providing secured tenure, ensures that persons holding public service positions are free from political interference or pressures.

要保证担任公职的人无政治干涉或压力之虞就需要将机会均等和择优录取的一般原则做为担任公职的原则，并提供工作保障。

It is of particular importance to ensure that persons do not suffer discrimination in the exercise of their rights under article 25, subparagraph (c), on any of the grounds set out in article 2, paragraph 1.

尤其重要的是保证个人在行使第二十五条(丙)项规定的权利时，不受到基于第二条第1款所指任何理由的歧视。

24. State reports should describe the conditions for access to public service positions, any restrictions which apply and the processes for appointment, promotion, suspension and dismissal or removal from office as well as the judicial or other review mechanisms which apply to these processes.

24. 缔约国报告应该阐述担任公职的条件、适用的任何限制和任命、晋升、停职和解职或调动职务的程序以及适用于这些程序的司法或其他审查机制。

Reports should also indicate how the requirement for equal access is met, and whether affirmative measures have been introduced and, if so, to what extent.

报告也应该说明如何落实机会平等的要求，是否采取了积极措施，如果是，程度如何。

25. In order to ensure the full enjoyment of rights protected by article 25, the free communication of information and ideas about public and political issues between citizens, candidates and elected representatives is essential.

25. 为了保证充分享受第二十五条保护的权利，公民、候选人和当选代表之间就公共和政治问题自由交流信息和交换意见至关重要。

This implies a free press and other media able to comment on public issues without censorship or restraint and to inform public opinion.

这意味着新闻或其他媒介的自由，可以对公共问题发表意见，而不受新闻检查或限制，和发表公众意见。

It requires the full enjoyment and respect for the rights guaranteed in articles 19, 21 and 22 of the Covenant, including freedom to engage in political activity individually or through political parties and other organizations, freedom to debate public affairs, to hold peaceful demonstrations and meetings, to criticize and oppose, to publish political material, to campaign for election and to advertise political ideas.

它还要求充分享受和尊重《公约》第十九、二十一和二十二条保证的权利，包括个人或通过政党和其他组织从事政治活动的自由、辩论公共事务的自由、举行和平示威和集会的自由。 批评和反对的自由、印发政治材料的自由、竞选和宣传政治主张的自由。

26. The right to freedom of association, including the right to form and join organizations and associations concerned with political and public affairs, is an essential adjunct to the rights protected by article 25.

26. 结社自由的权利，包括成立或加入涉及政治和公共事务的组织和协会的权利是对第二十五条保护的权利的重要补充。

Political parties and membership in parties play a significant role in the conduct of public affairs and the election process.

政党和党员在公共事务和选举活动中发挥重大作用。

States should ensure that, in their internal management, political parties respect the applicable provisions of article 25 in order to enable citizens to exercise their rights thereunder.

国家应该保证政党在其内部管理中遵守第二十五条的适用的规定，以便使公民能行使该条规定的权利。

27. Having regard to the provision of article 5, paragraph 1, of the Covenant, any rights recognized and protected by article 25 may not be interpreted as implying a right to act or as validating any act aimed at the destruction or limitation of the rights and freedoms protected by the Covenant to a greater extent than what is provided for in the present Covenant.

27. 考虑到《公约》第五条第1款的规定，第二十五条承认和保护的任何权利不得解释为隐示有权从事或确认旨在破坏《公约》保护的权利和自由或对它们加以较《公约》所规定的范围更广的限制的任何行为。

Notes

注

{§1}Adopted by the Committee at its 1510th meeting (fifty-seventh session) on 12 July 1996.

{§1}委员会1996年7月12日第1510次会议(第五十七届会议)通过。

{§2}The number in parenthesis indicates the session at which the general comment was adopted.

{§2}括号内的数字指通过一般性意见的那届会议。