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General comment No. 8:	第8号一般性意见：
The relationship between economic sanctions and respect for economic, social and cultural rights	实施经济制裁与尊重经济、社会、文化权利的关系
Seventeenth session (1997){§*}	十七届会议(1997年) {§*}
1. Economic sanctions are being imposed with increasing frequency, both internationally, regionally and unilaterally.	1. 经济制裁现在在国际、区域范围内使用得越来越多，而且越来越单方面地使用。
The purpose of this general comment is to emphasize that, whatever the circumstances, such sanctions should always take full account of the provisions of the International Covenant on Economic, Social and Cultural Rights.	本一般性意见的目的是强调，不论在何种情况下，实施经济制裁时均应充分考虑到《经济、社会、文化权利国际公约》的规定。
The Committee does not in any way call into question the necessity for the imposition of sanctions in appropriate cases in accordance with Chapter VII of the Charter of the United Nations or other applicable international law.	委员会丝毫不怀疑在适当情况下按照《联合国宪章》第七章或其他适用的国际法律实施制裁的必要性。
But those provisions of the Charter that relate to human rights (arts. 1, 55 and 56) must still be considered to be fully applicable in such cases.	但《宪章》中与人权有关的规定(第一、第五十五和第五十六条)均应依然认为在这些情况下完全适用。
2. During the 1990s the Security Council has imposed sanctions of varying kind and duration in relation to South Africa, Iraq/Kuwait, parts of the former Yugoslavia, Somalia, the Libyan Arab Jamahiriya, Liberia, Haiti, Angola, Rwanda and the Sudan.	2. 自1990年代开始以来，安全理事会实施了各种各样的期限不等的制裁，分别涉及南非、伊拉克/科威特、前南斯拉夫的一部分、索马里、阿拉伯利比亚民众国、利比里亚、海地、安哥拉、卢旺达、苏丹等。
The impact of sanctions upon the enjoyment of economic, social and cultural rights has been brought to the Committee's attention in a number of cases involving States parties to the Covenant, some of which have reported regularly, thereby giving the Committee the opportunity to examine the situation carefully.	有一些制裁涉及《公约》的缔约国，并且一些缔约国也经常予以报告，因而委员会注意到了制裁对于享受经济、社会、文化权利的影响，委员会也有机会对这些情况给予认真的审议。
3. While the impact of sanctions varies from one case to another, the Committee is aware that they almost always have a dramatic impact on the rights recognized in the Covenant.	3. 制裁的情况虽然各有不同，但委员会注意到，制裁几乎每次都对《公约》所承认的权利造成巨大影响。
Thus, for example, they often cause significant disruption in the distribution of food, pharmaceuticals and sanitation supplies, jeopardize the quality of food and the availability of clean drinking water, severely interfere with the functioning of basic health and education systems, and undermine the right to work.	例如，制裁往往在很大程度上造成食品、药品和卫生用品的供应中断，威胁到食物的质量和清洁饮用水的供应，严重干扰基本的卫生和教育系统的运转，并削弱了工作权。
In addition, their unintended consequences can include reinforcement of the power of oppressive elites, the emergence, almost invariably, of a black market and the generation of huge windfall profits for the privileged elites which manage it, enhancement of the control of the governing elite over the population at large, and restriction of opportunities to seek asylum or to manifest political opposition.	此外，制裁措施无意中造成的后果还可能包括：少数当权者的权力得到加强，几乎总是导致黑市的产生，掌握黑市的少数人赢得暴利，少数当权者对人民大众的控制得到加强，寻求庇护和进行政治反对活动的机会受到限制。
While the phenomena mentioned in the preceding sentence are essentially political in nature, they also have a major additional impact on the enjoyment of economic, social and cultural rights.	虽然上边所说的现象基本上是政治性质的，但对享受经济、社会、文化权利也具有重要的影响。
4. In considering sanctions, it is essential to distinguish between the basic objective of applying political and economic pressure upon the governing elite of the country to persuade them to conform to international law, and the collateral infliction of suffering upon the most vulnerable groups within the targeted country.	4. 在讨论制裁的问题时，有必要区分对有关国家的当权者实施政治和经济压力使之遵从国际法这一基本目标与受制裁国最脆弱的群体遭受的附带影响。
For that reason, the sanctions regimes established by the Security Council now include humanitarian exemptions designed to permit the flow of essential goods and services destined for humanitarian purposes.	出于这一理由，安全理事会所确立的制裁制度现在包含人道主义豁免，这种豁免目的是使服务于人道主义目的的基本用品和服务能得到继续供应。
It is commonly assumed that these exemptions ensure basic respect for economic, social and cultural rights within the targeted country.	一般认为，这些豁免确保了经济、社会、文化权利在受制裁国境内得到基本尊重。
5. However, a number of recent United Nations and other studies which have analysed the impact of sanctions have concluded that these exemptions do not have this effect.	5. 然而，最近由联合国和其他方面提出的对制裁影响进行分析的研究报告所得出的结论认为，这些豁免并没有产生这样的效果。
Moreover, the exemptions are very limited in scope.	此外，豁免措施在范围上也十分有限。
They do not address, for example, the question of access to primary education, nor do they provide for repairs to infrastructures which are essential to provide clean water, adequate health care etc.	例如豁免措施并没有处理获得基本教育的问题，也没有考虑对基础设施进行修复的问题，而这些基础设施对于提供清洁的水、充足的医疗保健等是必不可少的。
The Secretary-General suggested in 1995 that there is a need to assess the potential impact of sanctions before they are imposed and to enhance arrangements for the provision of humanitarian assistance to vulnerable groups.	联合国秘书长曾在1995年提出，在实施制裁之前，有必要评估制裁的潜在影响，并设法作出关于对脆弱群体提供人道主义援助的安排。
In the following year, a major study prepared for the General Assembly by Ms. Graça Machel, on the impact of armed conflict on children, stated that "humanitarian exemptions tend to be ambiguous and are interpreted arbitrarily and inconsistently Delays, confusion and the denial of requests to import essential humanitarian goods cause resource shortages [Their effects] inevitably fall most heavily on the poor".	次年，Graça Machel女士为大会编写了一份关于武装冲突对儿童的影响的重要报告，报告说“人道主义豁免措施往往含混不清，并且得到任意和相互矛盾的解释…拖延、混 乱、以及拒不批准进口基本的人道主义物资等，造成了资源短缺…[这些现象]无疑使穷人遭受的影响最重”。
Most recently, an October 1997 United Nations report concluded that the review procedures established under the various sanctions committees established by the Security Council "remain cumbersome and aid agencies still encounter difficulties in obtaining approval for exempted supplies [The] committees neglect larger problems of commercial and governmental violations in the form of black-marketing, illicit trade, and corruption".	最近于1997年10月发表的一份报告得出的结论认为，安全理事会所设的各种制裁委员会所确立的审查程序“依然十分烦琐，援助机构在获准供应例外的物资方面依然遭受到困难…这些委员会忽视了工商界和政府以黑市、非法贸易、腐败等形式进行的非法活动的更大问题。”
6. It is thus clear, on the basis of an impressive array of both country-specific and general studies, that insufficient attention is being paid to the impact of sanctions on vulnerable groups.	6. 因此可以看出，根据大量的针对具体国家的以及一般性的研究报告，脆弱群体所遭受的制裁影响问题没有得到足够的注意。
Nevertheless, for various reasons, these studies have not examined specifically the nefarious consequences that ensue for the enjoyment of economic, social and cultural rights, per se.	尽管如此，由于各种原因，这些研究报告并没有具体地分析对于享受经济、社会、文化权利本身所带来的恶劣影响。
It is in fact apparent that in most, if not all, cases, those consequences have either not been taken into account at all or not given the serious consideration they deserve.	事实上从大多数情况来看，这些后果根本没有被考虑到或者没有得到应该得到的认真考虑。
There is thus a need to inject a human rights dimension into deliberations on this issue.	因此有必要在讨论这个问题时加上人权的考虑。
7. The Committee considers that the provisions of the Covenant, virtually all of which are also reflected in a range of other human rights treaties as well as the Universal Declaration of Human Rights, cannot be considered to be inoperative, or in any way inapplicable, solely because a decision has been taken that considerations of international peace and security warrant the imposition of sanctions.	7. 委员会认为，不能单单因为作出了一项决定，要为维护国际和平与安全而实施制裁措施，便可以认为《公约》的规定是不起作用的，或者是不适用的。 实际上《公约》的几乎所有规定也反映在一系列其他人权条约以及《世界人权宣言》中。
Just as the international community insists that any targeted State must respect the civil and political rights of its citizens, so too must that State and the international community itself do everything possible to protect at least the core content of the economic, social and cultural rights of the affected peoples of that State (see also general comment No. 3 (1990), para. 10).	国际社会坚持要求任何受制裁国必须尊重其公民的公民权利和政治权利，同样，该国以及国际社会本身也必须尽一切努力保护该国受影响人民的最起码的经济、社会、文化权利(另见第3号一般性意见(1990年)，第10段)。
8. While this obligation of every State is derived from the commitment in the Charter of the United Nations to promote respect for all human rights, it should also be recalled that every permanent member of the Security Council has signed the Covenant, although two (China and the United States) have yet to ratify it.	8. 各国的这一义务产生于《联合国宪章》中有关促进对所有人权的尊重的承诺，同时还应指出，安全理事会的每一个常任理事国都签署了《公约》，虽然两个常任理事国(中国和美利坚合众国)尚未批准。
Most of the non-permanent members at any given time are parties.	在任何时候，大多数非常任理事国也是缔约国。
Each of these States has undertaken, in conformity with article 2, paragraph 1, of the Covenant to "take steps, individually and through international assistance and cooperation, especially economic and technical, to the maximum of its available resources, with a view to achieving progressively the full realization of the rights recognized in the present Covenant by all appropriate means … ". When the affected State is also a State party, it is doubly incumbent upon other States to respect and take account of the relevant obligations.	各缔约国均按照《公约》第二条第一款承诺“尽最大能力个别采取步骤或经由国际援助 和合作，特别是经济和技术方面的援助和合作采取步骤，以便用一切适当方法，尤其包括用立法方法，逐渐达到本公约中所承认的权利的充分实现…”当受影响国也 是缔约国时，其他国家更有义务尊重并考虑到有关的义务。
To the extent that sanctions are imposed on States which are not parties to the Covenant, the same principles would in any event apply given the status of the economic, social and cultural rights of vulnerable groups as part of general international law, as evidenced, for example, by the near-universal ratification of the Convention on the Rights of the Child and the status of the Universal Declaration of Human Rights.	如果受制裁的国家不是《公约》缔约国，同样的原则无论如何也应当适用，这是由于脆弱群体的经济、社会、文化权利所处的地位。 《儿童权利公约》的几乎普遍得到批准，以及《世界人权宣言》的地位都说明了这一点。
9. Although the Committee has no role to play in relation to decisions to impose or not to impose sanctions, it does, however, have a responsibility to monitor compliance by all States parties with the Covenant.	9. 虽然委员会在作出是否制裁的决定上不起任何作用，但委员会的确有责任监督所有缔约国对《公约》的遵守。
When measures are taken which inhibit the ability of a State party to meet its obligations under the Covenant, the terms of sanctions and the manner in which they are implemented become appropriate matters for concern for the Committee.	当所采取的制裁措施妨碍一个缔约国履行其按照《公约》所承担的义务时，那么制裁条件以及实施制裁的方式便成为委员会所关注的适当事项。
10. The Committee believes that two sets of obligations flow from these considerations.	10. 委员会认为由这些考虑中产生出两套义务。
The first set relates to the affected State.	第一套义务涉及受影响的国家。
The imposition of sanctions does not in any way nullify or diminish the relevant obligations of that State party.	实施制裁在任何意义上都没有取消或削弱该缔约国的有关义务。
As in other comparable situations, those obligations assume greater practical importance in times of particular hardship.	正如在其他相似的情况中那样，这些义务在困难时期具有了更大的实际意义。
The Committee is thus called upon to scrutinize very carefully the extent to which the State concerned has taken steps "to the maximum of its available resources" to provide the greatest possible protection for the economic, social and cultural rights of each individual living within its jurisdiction.	因此委员会必须十分认真地考察有关国家在多大程度上“尽最大能力”为其管辖范围内的每个个人的经济、社会、文化权利提供尽可能大的保护。
While sanctions will inevitably diminish the capacity of the affected State to fund or support some of the necessary measures, the State remains under an obligation to ensure the absence of discrimination in relation to the enjoyment of these rights, and to take all possible measures, including negotiations with other States and the international community, to reduce to a minimum the negative impact upon the rights of vulnerable groups within the society.	制裁毫无疑问会削弱受影响的国家资助或支持一些必要措施的能力，但该国依然有义务确保在这些权利的享受上没有任何歧视现象，并应采取所有可能的措施包括与其他国家以及国际社会进行谈判，将对其社会内每个个人的权利所受的消极影响降低到最低限度。
11. The second set of obligations relates to the party or parties responsible for the imposition, maintenance or implementation of the sanctions, whether it be the international community, an international or regional organization, or a State or group of States.	11. 第二套义务涉及对实施、维持或执行制裁措施负有责任的国家或方面，不论是国际社会、一个国际或区域组织、或一个国家或国家集团。
In this respect, the Committee considers that there are three conclusions which follow logically from the recognition of economic, social and cultural human rights.	在这方面，委员会认为由承认经济、社会、文化权利可以产生三个结论。
12. First, these rights must be taken fully into account when designing an appropriate sanctions regime.	12. 第一，在设计适当的制裁制度时必须充分考虑到这些权利。
Without endorsing any particular measures in this regard, the Committee notes proposals such as those calling for the creation of a United Nations mechanism for anticipating and tracking sanctions impacts, the elaboration of a more transparent set of agreed principles and procedures based on respect for human rights, the identification of a wider range of exempt goods and services, the authorization of agreed technical agencies to determine necessary exemptions, the creation of a better resourced set of sanctions committees, more precise targeting of the vulnerabilities of those whose behaviour the international community wishes to change, and the introduction of greater overall flexibility.	委员会对于这 方面的任何具体措施没有表示首肯，但注意到下列建议：例如要求设立一项联合国机制，用于预测并跟踪制裁的影响；在尊重人权的基础上，拟订一套更为透明的议 定的原则和程序；确定范围更为广泛的受豁免的物资和服务；由商定的技术机构授权确定必要的豁免；设立力量更为充实的制裁委员会；对于国际社会想改变其行为 的人，更准确地找出其弱点；在总体上实施更大的灵活性。
13. Second, effective monitoring, which is always required under the terms of the Covenant, should be undertaken throughout the period that sanctions are in force.	13. 第二，应在实施制裁的整个时期内进行有效的监督，这也是《公约》所要求的。
When an external party takes upon itself even partial responsibility for the situation within a country (whether under Chapter VII of the Charter or otherwise), it also unavoidably assumes a responsibility to do all within its power to protect the economic, social and cultural rights of the affected population.	当外部的一方对一国内的形势担负起责任哪怕是部分的责任(无论是按照《宪章》第七章或按照其他规定)，那么该方无疑具有责任，应尽其一切可能保护受影响的人口的经济、社会、文化权利。
14. Third, the external entity has an obligation "to take steps, individually and through international assistance and cooperation, especially economic and technical" in order to respond to any disproportionate suffering experienced by vulnerable groups within the targeted country.	14. 第三，外部一方有义务“个别采取步骤或经由国际援助和合作采取步骤，特别是经济和技术援助”(《公约》第二条第一款)，以便对受制裁国内的脆弱群体所遭受的不适当的痛苦作出反应。
15. In anticipating the objection that sanctions must, almost by definition, result in the grave violation of economic, social and cultural rights if they are to achieve their objectives, the Committee notes the conclusion of a major United Nations study to the effect that "decisions to reduce the suffering of children or minimize other adverse consequences can be taken without jeopardizing the policy aim of sanctions.	15. 有人说，制裁按照其定义，必然造成经济、社会、文化权利遭受严重侵犯，如果制裁要想达到其目的的话。 对此意见，委员会指出以下最近的一份主要研究报告的结论，其大意是：“在不影响制裁的政策目标的情况下，可以作出决定，减少儿童所受的痛苦或最大限度缩小 其他不利后果”。
This applies equally to the situation of all vulnerable groups.	这一点同样适用于其他脆弱群体的情况。
16. In adopting this general comment the sole aim of the Committee is to draw attention to the fact that the inhabitants of a given country do not forfeit their basic economic, social and cultural rights by virtue of any determination that their leaders have violated norms relating to international peace and security.	16. 在通过这项一般性意见时，委员会的唯一目的是提请注意如下事实：一个国家的居民不能由于外部认定其领导人违反了与国际和平和安全有关的准则，便丧失了他们的基本的经济、社会、文化权利。
The aim is not to give support or encouragement to such leaders, nor is it to undermine the legitimate interests of the international community in enforcing respect for the provisions of the Charter of the United Nations and the general principles of international law.	委员会的目的不是向这样的领导人提供支持或鼓励，也不是想削弱国际社会在维护对《联合国宪章》和一般国际法原则的尊重方面的正当利益。
Rather, it is to insist that lawlessness of one kind should not be met by lawlessness of another kind which pays no heed to the fundamental rights that underlie and give legitimacy to any such collective action.	委员会实际上是要表明，不能无视任何这类集体行动所依赖和引为根据的基本权利，以一种非法取代另一种非法。
Notes	注
{§*} Contained in document E/1998/22.	{§*} 载于E/1998/22号文件。
Supplement to an Agenda for Peace, (A/50/60 S/1995/1), paragraphs 66 to 76.	“和平议程”补编(A/50/60-S/1995/1)，第66至76段。
Impact of Armed Conflict on children: Note by the Secretary General (A/51/306, annex) (1996), paragraph 128.	武装冲突对儿童的影响：秘书长的说明(A/51/306,附件)，第128段。
L. Minear, et al., Toward More Humane and Effective Sanctions Management: Enhancing the Capacity of the United Nations System, Executive Summary.	L. Minear et al.， Towards More Humane and Effective Sanctions Management：Enhancing the Capacity of the United Nations System, 内容提要。
Study prepared at the request of the United Nations Department of Humanitarian Affairs on behalf of the Inter agency Standing Committee, 6 October 1997.	应联合国人道主义事务部要求为机构间常设委员会编写的研究报告，1997年10月6日。
Ibid.	同上。