General comment No. 27:

CCPR 第27号一般性意见：

Article 12 (Freedom of movement)

第十二条(迁徙自由)

Sixty-seventh session (1999){§*}

第六十七届会议(1999年){§*}

1. Liberty of movement is an indispensable condition for the free development of a person.

1. 迁徙自由是一个人自由发展必不可少的条件。

It interacts with several other rights enshrined in the Covenant, as is often shown in the Committee’s practice in considering reports from States parties and communications from individuals.

它又与《公约》中规定的其他权利相互联系，这从委员会审议缔约国报告和个人来文的实际活动中经常可以看出。

Moreover, the Committee in its general comment No. 15 (“The position of aliens under the Covenant”, 1986) referred to the special link between articles 12 and 13. {§1}

另外，委员会在第15号一般性意见(《公约》所规定的外侨地位)中就谈到了第十二条和第十三条之间的联系。{§1}

2. The permissible limitations which may be imposed on the rights protected under article 12 must not nullify the principle of liberty of movement, and are governed by the requirement of necessity provided for in article 12, paragraph 3, and by the need for consistency with the other rights recognized in the Covenant.

2. 对于《公约》第十二条所保护权利允许施加的限制不得损害自由迁徙的原则，服从第十二条第3款规定的需要并与《公约》承认的其他权利一致。

3. States parties should provide the Committee in their reports with the relevant domestic legal rules and administrative and judicial practices relating to the rights protected by article 12, taking into account the issues discussed in the present general comment.

3. 缔约国应在其向委员会提交的报告中提供与第十二条所保护权利有关的国内法律条文及行政司法作法，同时要考虑到在一般性意见中讨论的问题。

They must also include information on remedies available if these rights are restricted.

报告中还必须包括这些权利受到侵犯时可采取的补救办法。

Liberty of movement and freedom to choose residence (para.

迁徙自由和选择住所的自由

1) 4. Everyone lawfully within the territory of a State enjoys, within that territory, the right to move freely and to choose his or her place of residence.

4. 合法处在某一国家境内的每一个人均在此国境内享有迁徙自由和选择住所的自由权利。

In principle, citizens of a State are always lawfully within the territory of that State.

原则上讲，一个国家的公民总是合法处于该国领土内。

The question whether an alien is “lawfully” within the territory of a State is a matter governed by domestic law, which may subject the entry of an alien to the territory of a State to restrictions, provided they are in compliance with the State’s international obligations.

一个外侨是否合法处于某一国家领土内是一个由国内法规定的问题，国内外可对外侨进入国境施加限制，条件是应遵守该国的国际义务。

In that connection, the Committee has held that an alien who entered the State illegally, but whose status has been regularized, must be considered to be lawfully within the territory for the purposes of article 12. {§2}

这方面，委员会认为，非法进入一个国家的侨民，如其地位已经合法化，则为第十二条之目的必须认为是合法处于领土内。{§2}

Once a person is lawfully within a State, any restrictions on his or her rights guaranteed by article 12, paragraphs 1 and 2, as well as any treatment different from that accorded to nationals, have to be justified under the rules provided for by article 12, paragraph 3. {§3}

一旦这个人合法处一个国家领土内，对他根据第十二条第1款和第2款享受的权利所施加的任何限制以及给予他的不同于本国国民的任何待遇，都需根据第十二条第3款的规定说明这种做法是合理的。{§3}

It is, therefore, important that States parties indicate in their reports the circumstances in which they treat aliens differently from their nationals in this regard and how they justify this difference in treatment.

因此对缔约国来说重要的是，要在报告中阐明给外侨不同于本国国民待遇的背景情况，并且说明这种差别待遇是有道理的。

5. The right to move freely relates to the whole territory of a State, including all parts of federal States.

5. 迁徙自由涉及国家整个领土，包括联邦国家的各个部分。

According to article 12, paragraph 1, persons are entitled to move from one place to another and to establish themselves in a place of their choice.

根据第十二条第1款，人人有权从一处迁徙到另一处，并在自己选择的地址定居。

The enjoyment of this right must not be made dependent on any particular purpose or reason for the person wanting to move or to stay in a place.

享受这一权利不取决于欲意迁徙或居住某地的人的目的或理由。

Any restrictions must be in conformity with paragraph 3.

任何限制必须符合第3款的规定。

6. The State party must ensure that the rights guaranteed in article 12 are protected not only from public but also from private interference.

6. 缔约国必须保证，第十二条保证的权利必须不能受到国家或个人的干涉。

In the case of women, this obligation to protect is particularly pertinent.

保护的义务特别适用于妇女。

For example, it is incompatible with article 12, paragraph 1, that the right of a woman to move freely and to choose her residence be made subject, by law or practice, to the decision of another person, including a relative.

例如，无论是法律规定还是惯例，使妇女迁徙和选择住所的自由权服从另外一个人(包括亲属)的决定是不符合第十二条第3款的规定的。

7. Subject to the provisions of article 12, paragraph 3, the right to reside in a place of one’s choice within the territory includes protection against all forms of forced internal displacement.

7. 按照第十二条第3款规定，在某领土内选择住所的权利包括防止各种形式的强迫国内迁移。

It also precludes preventing the entry or stay of persons in a defined part of the territory.

也包括不得禁止进入和定居于领土的特定部分。

Lawful detention, however, affects more specifically the right to personal liberty and is covered by article 9 of the Covenant.

依法进行的拘禁更直接影响人身自由，第九条中对此进行了论述。

In some circumstances, articles 12 and 9 may come into play together. {§4}

一些情况下，第十二条和第九条可同时起作用。{§4}

Freedom to leave any country, including one’s own (para. 2)

自由离开任何国家，包括其本国在内

8. Freedom to leave the territory of a State may not be made dependent on any specific purpose or on the period of time the individual chooses to stay outside the country.

8. 自由离开一个国家领土不取决于决定去外国的人的具体目的或特定时期。

Thus travelling abroad is covered, as well as departure for permanent emigration.

到国外旅行及开始长期移居国外也属此类。

Likewise, the right of the individual to determine the State of destination is part of the legal guarantee.

同样，个人确定目的地国的权利也是法律保障的一部分。

As the scope of article 12, paragraph 2, is not restricted to persons lawfully within the territory of a State, an alien being legally expelled from the country is likewise entitled to elect the State of destination, subject to the agreement of that State. {§5}

由于第十二条第2款不局限于合法处于某一国家境内的人，被驱逐出境的外侨也同样有权选择某一国为目的地国，当然要征得这个国家的同意。{§5}

9. In order to enable the individual to enjoy the rights guaranteed by article 12, paragraph 2, obligations are imposed both on the State of residence and on the State of nationality. {§6}

9. 为了使个人能享受第十二条第2款保证的权利，对居留国和原籍国都提出了一定义务。{§6}

Since international travel usually requires appropriate documents, in particular a passport, the right to leave a country must include the right to obtain the necessary travel documents.

由于国际旅行需要适当的文件，特别是护照，迁离一个国家的权利就包括获得必要旅行文件的权利。

The issuing of passports is normally incumbent on the State of nationality of the individual.

发放护照一般是原籍国义不容辞的责任。

The refusal by a State to issue a passport or prolong its validity for a national residing abroad may deprive this person of the right to leave the country of residence and to travel elsewhere. {§7}

国家拒绝发放护照或拒绝延长境外国民护照的有效期就会剥夺其离开居住国旅行到别处去的权利。{§7}

It is no justification for the State to claim that its national would be able to return to its territory without a passport.

国家不能以其国民没有护照也可回国入境为理由证明上述做法合理。

10. The practice of States often shows that legal rules and administrative measures adversely affect the right to leave, in particular, a person’s own country.

10. 各国的实际情况经常表明，法律规定和行政措施限制人们特别是离开自己本国。

It is therefore of the utmost importance that States parties report on all legal and practical restrictions on the right to leave which they apply both to nationals and to foreigners, in order to enable the Committee to assess the conformity of these rules and practices with article 12, paragraph 3.

因此，非常重要的是缔约国报告它们对本国国民和外国人离境权施加的法律和实际限制，以便使委员会能估计这些法律条文及做法是否与第十二条第3款相吻合。

States parties should also include information in their reports on measures that impose sanctions on international carriers which bring to their territory persons without required documents, where those measures affect the right to leave another country.

缔约国还应在报告中包括对将无必要文件的人带入其领土的国际运输工具所采取的制裁措施，因为这些措施影响离开另外一个国家的权利。

Restrictions (para.

限制(第3款)

3) 11. Article 12, paragraph 3, provides for exceptional circumstances in which rights under paragraphs 1 and 2 may be restricted. This provision authorizes the State to restrict these rights only to protect national security, public order (ordre public), public health or morals and the rights and freedoms of others.

11. 第十二条第3款规定了可对第1款和第2款保证的权利施加限制的例外情况，即只有在为了保护国家安全、公共秩序、公共卫生或道德或他人的权利和自由时才能对这些权利加以限制。

To be permissible, restrictions must be provided by law, must be necessary in a democratic society for the protection of these purposes and must be consistent with all other rights recognized in the Covenant (see paragraph 18 below).

为了施行限制，必须在法律上对其加以规定，必须是民主社会为了保护上述种种目的，而且必须与《公约》中承认的其他权利相一致。

12. The law itself has to establish the conditions under which the rights may be limited.

12. 法律本身需规定限制这些权利的条件。

State reports should therefore specify the legal norms upon which restrictions are founded.

因此缔约国要具体说明实行限制的法律规范。

Restrictions which are not provided for in the law or are not in conformity with the requirements of article 12, paragraph 3, would violate the rights guaranteed by paragraphs 1 and 2.

法律上没有规定的限制或与第十二条第3款不一致的限制都会破坏第1款和第2款保证的权利。

13. In adopting laws providing for restrictions permitted by article 12, paragraph 3, States should always be guided by the principle that the restrictions must not impair the essence of the right (cf. article 5, paragraph 1); the relation between right and restriction, between norm and exception, must not be reversed.

13. 在制订有关第十二条第3款所允许的限制的法律时，各国应永远以这样一条原则为指导，即限制不应破坏权利最根本的内容(参阅第五条第1款)；权利与限制及规范与例外之间的关系不应倒置。

The laws authorizing the application of restrictions should use precise criteria and may not confer unfettered discretion on those charged with their execution.

授权实行限制的法律必须使用精确的标准，对于实施限制者不能给予无限的权限。

14. Article 12, paragraph 3, clearly indicates that it is not sufficient that the restrictions serve the permissible purposes; they must also be necessary to protect them.

14. 第十二条第3款明确指出，限制仅仅有利于可允许的意图是不够的，它们必须是为保护这些意图而必不可少才行。

Restrictive measures must conform to the principle of proportionality; they must be appropriate to achieve their protective function; they must be the least intrusive instrument amongst those which might achieve the desired result; and they must be proportionate to the interest to be protected.

限制性措施必须符合相称原则；必须适合于实现保护功能；必须是可用来实现预期结果的诸种手段中侵犯性最小的一个；必须与要保护的利益相称。

15. The principle of proportionality has to be respected not only in the law that frames the restrictions, but also by the administrative and judicial authorities in applying the law.

15. 相称原则不仅必须在规定限制的法律中得到尊重，而且行政和司法当局也必须遵守。

States should ensure that any proceedings relating to the exercise or restriction of these rights are expeditious and that reasons for the application of restrictive measures are provided.

各国应确保有关这些权利实行或限制的任何诉讼必须迅速完成，实行限制措施要提出理由。

16. States have often failed to show that the application of their laws restricting the rights enshrined in article 12, paragraphs 1 and 2, are in conformity with all requirements referred to in article 12, paragraph 3.

16. 许多国家经常不能表明，执行法律限制第十二条第1、第2款规定的权利是与按照第十二条第3款的要求进行的。

The application of restrictions in any individual case must be based on clear legal grounds and meet the test of necessity and the requirements of proportionality.

对任何人施加的限制必须有明确的法律依据，确属必要而且符合相称原则的要求。

These conditions would not be met, for example, if an individual were prevented from leaving a country merely on the ground that he or she is the holder of “State secrets”, or if an individual were prevented from travelling internally without a specific permit.

例如，如果仅以其掌握“国家机密”为理由就不允许出国，或一个人没有某种许可就不准在国内旅行，就是不符合上述要求的。

On the other hand, the conditions could be met by restrictions on access to military zones on national security grounds, or limitations on the freedom to settle in areas inhabited by indigenous or minorities communities. {§8}

另一方面，如以国家安全为理由限制进入军事区域，或限制在土著或少数民族地区定居，则是符合要求的。 {§8}

17. A major source of concern is the manifold legal and bureaucratic barriers unnecessarily affecting the full enjoyment of the rights of the individuals to move freely, to leave a country, including their own, and to take up residence.

17. 令人感到关切的一个重要原因是许多法律和官僚主义的障碍过多地影响人们充分享受自由迁徙、离国(包括离开本国)及选择居所的权利。

Regarding the right to movement within a country, the Committee has criticized provisions requiring individuals to apply for permission to change their residence or to seek the approval of the local authorities of the place of destination, as well as delays in processing such written applications.

关于在国内迁徙，委员会已批评了要求申请更换住所允许的规定，要求获得目的地地方当局批准的规定以及处理书面申请拖拖拉拉的作法。

States’ practice presents an even richer array of obstacles making it more difficult to leave the country, in particular for their own nationals.

国家的惯例更是制造诸多障碍，使离开国家更为困难，对本国国民更是如此。

These rules and practices include, inter alia, lack of access for applicants to the competent authorities and lack of information regarding requirements; the requirement to apply for special forms through which the proper application documents for the issuance of a passport can be obtained; the need for supportive statements from employers or family members; exact description of the travel route; issuance of passports only on payment of high fees substantially exceeding the cost of the service rendered by the administration; unreasonable delays in the issuance of travel documents; restrictions on family members travelling together; requirement of a repatriation deposit or a return ticket; requirement of an invitation from the State of destination or from people living there; harassment of applicants, for example by physical intimidation, arrest, loss of employment or expulsion of their children from school or university; refusal to issue a passport because the applicant is said to harm the good name of the country.

这些法律和惯例包括，申请人难以接触主管当局并对相关要求缺乏了解；要求申请特殊表格，填写这些表格才能得到申请护照的文件；需要雇主或家庭成员表示支持的说明；确切描述旅行路线；领取护照所交费用大大高出行政服务的成本；签发旅行文件时不合理的延误；限制家庭成员一起旅行；要求交纳遣返抵押或回程机票；要求目的地国或那里居住的人的邀请信；对申请人骚扰，例如人身威胁、逮捕、解雇或将其子女从中小学或大学开除；拒绝发放护照因为据说申请人损害了国家声誉等。

In the light of these practices, States parties should make sure that all restrictions imposed by them are in full compliance with article 12, paragraph 3.

对照这些做法，缔约国应确保其施加的一切限制均符合第十二条第3款的规定。

18. The application of the restrictions permissible under article 12, paragraph 3, needs to be consistent with the other rights guaranteed in the Covenant and with the fundamental principles of equality and non-discrimination.

18. 实行第十二条第3款允许的限制必须与《公约》保证的其他权利一致，必须符合平等和不歧视的基本原则。

Thus, it would be a clear violation of the Covenant if the rights enshrined in article 12, paragraphs 1 and 2, were restricted by making distinctions of any kind, such as on the basis of race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.

这样，假如通过区别对待，如按照种族、肤色、性别、语言、宗教、政治或其他见解、民族血统或社会出身、财产、门第或其他地位，区别对待从而限制第十二条第1、第2款规定的权利，那就明显违背了《公约》。

In examining State reports, the Committee has on several occasions found that measures preventing women from moving freely or from leaving the country by requiring them to have the consent or the escort of a male person constitute a violation of article 12.

委员会在审查各国报告时曾几次发现，妇女自由迁徙或离开国家时要求有男性的同意或陪伴，这些措施就违反了第十二条的规定。

The right to enter one’s own country (para. 4)

进入本国的权利(第4款)

19. The right of a person to enter his or her own country recognizes the special relationship of a person to that country. The right has various facets.

19. 一个人进入本国的权利承认这个人与其国家之间的特殊关系。

It implies the right to remain in one’s own country.

这一权利包括几个方面。

It includes not only the right to return after having left one’s own country; it may also entitle a person to come to the country for the first time if he or she was born outside the country (for example, if that country is the person’s State of nationality).

它意味着有权停留在本国内；他或她出生在国外，这一权利可使其第一次进入国家(例如，如果这个国家是其原籍国)。

The right to return is of the utmost importance for refugees seeking voluntary repatriation.

回国的权利对于寻求自愿遣返的难民是至关重要的。

It also implies prohibition of enforced population transfers or mass expulsions to other countries.

这一权利也意味着禁止强迫人口迁徙或大规模驱逐人口出境。

20. The wording of article 12, paragraph 4, does not distinguish between nationals and aliens (“no one”).

20. 第十二条第4款的措辞并未区分国民和外侨(“任何人”)。

Thus, the persons entitled to exercise this right can be identified only by interpreting the meaning of the phrase “his own country”. {§9}

这样，一个人是否享有这一权利只有看对“本国”这一短语的解释。{§9}

The scope of “his own country” is broader than the concept “country of his nationality”.

“本国”的范围要大于“原籍国”。

It is not limited to nationality in a formal sense, that is, nationality acquired at birth or by conferral; it embraces, at the very least, an individual who, because of his or her special ties to or claims in relation to a given country, cannot be considered to be a mere alien.

它不局限于形式上的国籍，即出生时获得或被授与的国籍；它至少包括因与某国特殊联系和具有的特殊权利而不能被仅仅视为外侨的那些人。

This would be the case, for example, of nationals of a country who have there been stripped of their nationality in violation of international law, and of individuals whose country of nationality has been incorporated in or transferred to another national entity, whose nationality is being denied them.

例如，被违反国际法剥夺国籍的人和原籍国被并入或转移到另一国家实体的人，就属于此类。

The language of article 12, paragraph 4, moreover, permits a broader interpretation that might embrace other categories of long-term residents, including but not limited to stateless persons arbitrarily deprived of the right to acquire the nationality of the country of such residence.

第十二条第四款的语言允许做更广义的解释，使之可能包括其他种类的长期居民，包括但不局限于长期居住但被专横地剥夺了获得国籍权利的无国籍人。

Since other factors may in certain circumstances result in the establishment of close and enduring connections between a person and a country, States parties should include in their reports information on the rights of permanent residents to return to their country of residence.

由于其他因素在某些情况下可使个人和国家之间产生密切的长久的联系，因此缔约国的报告中应包括有关永久性居民返回居住国的权利的情况。

21. In no case may a person be arbitrarily deprived of the right to enter his or her own country.

21. 在任何情况下均不准专横地剥夺一个人返回其本国的权利。

The reference to the concept of arbitrariness in this context is intended to emphasize that it applies to all State action, legislative, administrative and judicial; it guarantees that even interference provided for by law should be in accordance with the provisions, aims and objectives of the Covenant and should be, in any event, reasonable in the particular circumstances.

这里引用“专横”这一概念，目的在于强调它适用了一切国家行动，包括立法、行政和司法行动；它保证即使是法律规定的干涉也应符合《公约》的规定、目标和宗旨，并且无论在任何特定情况下也应是合理的。

The Committee considers that there are few, if any, circumstances in which deprivation of the right to enter one’s own country could be reasonable.

委员会认为，合理地剥夺一个人返回其本国的情况如果有的话也极为少见。

A State party must not, by stripping a person of nationality or by expelling an individual to a third country, arbitrarily prevent this person from returning to his or her own country.

缔约国在剥夺一个人国籍或将其驱逐出境时，不得专横地阻止其返回本国。

Notes

注

{§*} Contained in document CCPR/C/21/Rev.1/Add.9.

{§*} 载于CCPR/C/21/Rev.1/Add.9。

{§1} HRI/GEN/1/Rev.3, 15 August 1997, p. 20 (para. 8).

{§1} HRI/GEN/1/Rev.3, 1997年8月15日，第20页(第8段)。

{§2} Communication No. 456/1991, Celepli v. Sweden, paragraph 9.2.

{§2} 第456/1991号来文，Celepli 诉瑞典案，第9.2段。

{§3} General comment No. 15, paragraph 8, in HRI/GEN/1/Rev.3, 15 August 1997, p. 20.

{§3} 第15号一般性意见， 第8段，载于HRI/GEN/1/Rev.3, 1997年8月15日，第20页。

{§4} See, for example, communication No. 138/1983, Mpandajila v. Zaire, paragraph 10; communication No. 157/1983, Mpaka-Nsusu v. Zaire, paragraph 10; communication Nos. 241/1987 and 242/1987, Birhashwirwa/Tshisekedi v. Zaire, paragraph 13.

{§4} 例如见第138/1983号来文，Mpandajila诉扎伊尔，第10段；第157/1983号来文，Mpaka-Nsusu诉扎伊尔，第10段；第241/1987和242/1987号来文，Birhashwirwa/Tshisekedi诉扎伊尔，第13段。

{§5} See general comment No. 15, paragraph 9, in HRI/GEN/1/Rev.3, 15 August 1997, p. 21.

{§5} 见第15号一般性意见， 第9段，载于HRI/GEN/1/Rev.3, 1997年8月15日，第21页。

{§6} See communication No. 106/1981, Montero v. Uruguay, paragraph 9.4; communication No. 57/1979, Vidal Martins v. Uruguay, paragraph 7; communication No. 77/1980, Lichtensztejn v. Uruguay, paragraph 6.1.

{§6} 见第106/1981号来文，Montero诉乌拉圭，第9.4段；第57/1979号来文，Vidal Martins诉乌拉圭，第7段；第77/1980号来文。 Lichtensztejn诉乌拉圭，第6.1段。

{§7} See communication No. 57/1979, Vidal Martins v. Uruguay, paragraph 9.

{§7} 见第57/1979号来文，Vidal Martins诉乌拉圭，第9段。

{§8} See general comment No. 23, paragraph 7, in HRI/GEN/1/Rev.3, 15 August 1997, p. 41.

{§8} 见第23号一般性意见，第7段，载于HRI/GEN/1/Rev.3, 1997年8月15日，第41页。

{§9} See communication No. 538/1993, Stewart v. Canada.

{§9} 见第538/1993号来文，Stewart诉加拿大。