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61. 2015 年，在最不发达国家的支出共计 102 亿美元。直到近期为止，国家一级支出总额中约有一半用于最不发达国家，高于全球官方发展援助的平均水平。在2014 年和 2015 年，这一比例降到 50%以下，在很大程度上是因为伊拉克和阿拉伯叙利亚共和国爆发人道主义危机，导致联合国在这两个国家以及周边受危机影响国家的支出上升。 | 61. Expenditures in the least developed countries totalled $10.2 billion in 2015. Until recently, approximately half of all country-level expenditures were spent in those countries, which is higher than the global ODA average. That share was below 50 per cent in both 2014 and 2015, owing in large part to the humanitarian crises in Iraq and the Syrian Arab Republic, which has led to an incre ase in United Nations expenditures in those two countries, as well as in neighbouring countries affected by those crises. |
图十七 | Figure XVII |
2010-2015 年在最不发达国家的支出 | Expenditures in the least developed countries: 2010-2015 |
62. 2016 年，秘书长按照可持续发展目标 17 的要求，开始了最不发达国家技术库的启动和运作进程。该技术库将充当最不发达国家的专用支持机制。2016 年 6月，技术库理事会围绕最不发达国家的科学、技术和创新能力建设，制定了三年战略计划。 | 62. In 2016, the Secretary-General began the process of launching and operationalizing the Technology Bank for the Least Developed Countries, as called for in Sustainable Development Goal 17, which would act as a supporting mechanism dedicated to those countries. In June 2016, the Bank’s governing council developed a three-year strategic plan for the institution centred on capacity-building in science, technology and innovation in those countries. |
63. 2015 年，对内陆发展中国家的名义支出为 63 亿美元，达到历史最高水平，占国家一级支出总额的 29%。 | 63. Expenditures in landlocked developing countries reached an all-time high, in nominal terms, of $6.3 billion in 2015, representing 29 per cent of total country-level expenditures. |
64. 对小岛屿发展中国家的支出则从 2010 年的历史最高水平 8.81 亿美元降至2015 年的 5.76 亿美元。不过，支出下滑的原因是海地发生地震灾害后，2010 年51%50%51%50%46%47%43%44%45%46%47%48%49%50%51%52%01 0002 0003 0004 0005 0006 0007 0008 0009 00010 0002010 2011 2012 2013 2014 2015在最不发达国家支出中所占比重在最不发达国家的支出( 百万美元)年份人道主义相关 发展相关 在最不发达国家支出中所占比重和 2011 年的人道主义支出特别高。若排除海地不计，其他小岛屿发展中国家的名义支出总额稳步上涨，从 2010 年的3.16 亿美元增加到 2015 年的 4.11 亿美元。 | 64. Expenditures in small island developing States have declined from an all-time high of $881 million in 2010 to $576 million in 2015. The decrease was, however, due to particularly high humanitarian expenditures in 2010 and 2011 following the earthquake in Haiti. Combined expenditures in other small island developing States, excluding Haiti, have increased steadily in nominal terms, from $316 million in 2010 to $411 million in 2015. |
五. 若干供资问题 | V. Selected funding issues |
A. 费用回收 | A. Cost recovery |
65. 过去 20 年来，由于核心供资与非核心供资愈发失衡，为供资活动提供实质和业务支助所产生的体制费用是否得到充分分配与回收的问题因此越来越多地引发关切。背后的逻辑是，如果方案支助费率不涵盖与非核心资源供资项目有关的全部非方案费用，包括行政与管理费用，那么非核心资源供资项目大幅增多，势必需要有更大的核心供资基数来进行支撑。 | 65. The growing imbalance between core and non-core funding over the past two decades has made the adequate attribution and recovery of institutional costs associated with substantive and operational support for those activities an issue of growing concern. This follows from the logic that a substantial increase in non -core financed projects also requires a larger core funding base to support if the programme support cost rate does not cover all the non-programme costs, which include administration and management costs, associated with non-core funded projects. |
66. 2016 年开展的一项独立外部评估审查了开发署、联合国人口基金(人口基金)、儿基会和联合国促进性别平等和增强妇女权能署(妇女署)各执行局 2013 年批准的费用回收新方法；根据这一方法，费用回收率从 2014 年开始从 7%提高到 8%。独立外部顾问得出的结论是，鉴于该方法中的某些条款规定，对一些类型的非核心捐助，包括由政府分摊费用的活动收到的捐助和没有严格指定用途的专题基金，适用更低的费用回收率，所以 8%的新定费率尚未彻底落实。此外，就有些捐助方而言，即使它们提供的捐助类型应适用标准费率，也没有意愿或能力采用新定费率。 | 66. In 2016, an independent and external assessment was conducted to review the new cost-recovery methodology approved by the executive boards of UNDP, the United Nations Population Fund (UNFPA), UNICEF and the United Nations Entity for Gender Equality and the Empowerment of Women (UN-Women) in 2013, which included increasing the cost-recovery rate from 7 per cent to 8 per cent beginning in 2014. The independent and external consultant concluded that the new rate of 8 per cent had not been fully applied, given that the methodology included some provisions by which some types of non-core contributions were subject to a reduced rate, including contributions to government cost-sharing activities and to loosely earmarked thematic funds. In addition, some donors had not been willing or able to accept the new rate, even when they provided the types of contributions that should be subject to the standard rate. |
67. 适用更低的费用回收率能激励捐助方提供某些类型的捐助，如没有严格指定用途的专题捐助，而不是严格指定用途的非核心资金。不过，适用更低的回收率会使联合国各实体偏离全额费用回收原则，因为有效的费用回收率往往最终低于8%的标准费率。独立评估显示，开发署、人口基金、儿基会和妇女署 2015 年的有效费用回收率介于 6.3%至 7.0%之间。考虑到 2015 年对这四个实体的非核心捐助超过了 100 亿美元，如果有效费用回收率仅比标准费率低 1%，就意味着另有1 亿美元属于非核心项目的非方案费用不是由非核心资金供资的。 | 67. Applying reduced cost-recovery rates can give donors an incentive to provide some types of contributions over others, for example to provide more loosely earmarked thematic contributions instead of strictly earmarked non-core funding. Applying such reduced rates, however, moves United Nations entities away from the principle of full cost recovery, given that the effective cost-recovery rates end up being lower than the standard rate of 8 per cent. The independent assessment showed that, for UNDP, UNFPA, UNICEF and UN-Women, the effective cost-recovery rates in 2015 ranged from 6.3 to 7.0 per cent. Considering that non-core contributions to those four entities exceeded $10 billion in 2015, if the effectiv e cost-recovery rate is just 1 per cent below the standard rate, it means that an extra $100 million in non-programme costs attributed to non-core projects are not being financed with non-core funds. |
68. 此外，在 8%标准费率的计算公式中排除了各实体的某些机构费用，如“关键交叉职能”，也排除了一些不是四个实体同样都有的费用。最后，这些例外和降低费率的情况意味着，本可用于核心方案活动的核心资金必须用来补贴非核心项目的非方案费用。基于这样的情况，秘书长在关于“联合国系统发展方面业务活动四年度全面政策审查：建议”的报告(A/71/292/Rev.1)中，建议向所有被严格指定用途的捐助分摊增额成本。这样分摊费用将有助于抵消对标准费用回收率实行的折扣和例外，同时继续激励捐助方提供特定类型捐助，如促进提高一致性和效率的捐助。这样做是合理的，因为需要支付处理和报告严格指定用途的资源通常会产生的额外管理和行政费用。其目标应当是采用必要水平的有效费用回收率，以避免需要用核心资源补贴非核心活动费用的情况。 | 68. Furthermore, the standard rate of 8 per cent was calculated through a formula that excluded some institutional costs of entities, such as “critical cross-cutting functions”, and some costs that are not common across all four entities. In the end, those exceptions and reduced rates mean that core funding that otherwise could have been spent on core programme activities must go towards subsidizing the non-programme costs of non-core projects. That circumstance forms the basis of the Secretary-General’s recommendation, contained in his report on the quadrenni al comprehensive policy review of operational activities for development of the United Nations system: recommendations (A/71/292/Rev.1), to attribute an incremental cost to all strictly earmarked contributions. Such a cost would help to offset the discounts and exceptions applied to the standard cost-recovery rate while maintaining the incentives for donors to provide specific types of contributions, such as those that promote greater coherence and efficiency. Such a levy can be justified owing to the need to cover extra management and administrative costs associated, in general, with the handling of and reporting on strictly earmarked resources. The goal should be to have an effective cost-recovery rate at the level required to prevent the need for core resources to subsidize the financing of non-core activities. |
69. 独立评估没有提供一个估计数，来说明核心资金在多大程度上被用于补贴非核心资源所资助活动的非方案费用。不过，秘书长最近关于四年度全面政策审查执行情况和关于发展方面业务活动供资情况的报告对非核心资金和费用回收进行了详细审查和分析(见A/71/63-E/2016/8、A/68/97-E/2013/87 和A/67/94-E/2012/80)。审查依据的是对用于方案活动(方案费用)以及方案支助和管理活动(非方案费用)的核心和非核心资源的总体比较。18 | 69. The independent assessment stopped short of providing an estimate of the extent to which core funds were being used to subsidize the non-programme costs of activities financed with non-core resources. Recent reports of the Secretary-General on the implementation of the quadrennial comprehensive policy review and on the funding of operational activities for development, however, have included a detailed review and analysis of non-core funding and cost recovery (see A/71/63-E/2016/8, A/68/97-E/2013/87 and A/67/94-E/2012/80). Those reviews have been based on a high-level comparison between the use of core and non-core resources for programme activities (programme costs) and programme support and management activities (non-programme costs).19 |
70. 秘书长所作总体比较的结果证实，核心与非核心供资来源在非方案费用分配方面确实存在重大差异。这样一来，核心资源被用来补贴非核心活动，从而减少了可用于实际方案活动的核心资金份额。这些研究显示，倘若实施第 67/226 号决议界定的全额成本回收原则，每年可额外释放 5.5 亿至 7.2 亿美元核心资源用于方案活动。这相当于每个四年度全面政策审查周期可额外释放 20 亿至 30 亿美元资金。与核心资源相比，用于方案活动的非核心资源的比例往往更高，这也可能是激励捐助方捐助非核心资源的一个因素。 | 70. The outcomes of the high-level comparisons conducted by the Secretary-General confirmed that there was indeed a significant difference in the distribution of non-programme costs between core and non-core funding sources. Consequently, core resources are being used to subsidize non-core activities, thereby reducing the share of core funds available for actual programme activities. The studies reveal that, if the principle of full cost recovery had been implemented, as defined in resolution 67/226, between $550 million and $720 million in additional core resources would have been released annually for programme activities. This translates to between $2 billion and $3 billion per quadrennial comprehensive policy review cycle. The fact that a higher proportion of non-core resources tends to be spent on programme activities compared with core resources may also provide an incentive for donors to contribute non-core funding. |
71. 必须指出，这些研究依据的是全系统汇总数据，因此，其结果并不意味着所有实体都用核心资金补贴非核心资源资助的项目。例如，粮食署适用全额费用回收原则，因为粮食署对核心和非核心捐助适用相同的费用回收率，以此为全部方案支助和行政预算供资。 | 71. It is important to note that those studies were based on aggregate system-wide data and that, therefore, the results do not imply that all entities subsidize non -core financed projects with core funds. For example, WFP applies the principle of full cost recovery, given that it finances its entire programme support and administrative budget by charging the same cost-recovery rate to its core and non-core contributions. |
B. 分担核心供资责任 | B. Burden sharing of core funding |
72. 如上所述，尽管联合国各实体努力扩大捐助方基数，但总的来说，它们高度依赖几个最大的捐助方为其提供大部分资金。 | 72. As described earlier, notwithstanding efforts by United Nations entities to broaden their donor base, they are, in general, highly dependent on a few top donors for the majority of their funding. |
73. 图十八通过列示 2015 年发展援助委员会捐助方的核心捐助占国民总收入的比例(核心捐助/国民总收入比例)，审查分担核心供资责任的问题。作为一个群体，这些国家在 2015 年捐助了 46 亿美元核心资源，约占收到的所有核心捐助的四分之三。该群体的核心捐助/国民总收入比例的中位数为 0.01%。应当指出，图十八横轴使用了对数标度。因此，所提供核心捐助数额差异很大的国家可能在图中显得比较接近。如上节所述，核心资源被用来补贴非核心资源供资的活动的支助和管理费用，因此，这样责任分担不均的情况有更加重要的意义。 | 73. Figure XVIII examines the issue of burden sharing of core funding by showing Development Assistance Committee donors’ core contributions relative to their gross national income (GNI) in 2015 (or core/GNI ratio). As a group, those countries contributed $4.6 billion in core resources in 2015, orsome three quart ers of all core contributions received. The median core/GNI ratio for that group of countries as a whole was 0.01 per cent. It should be noted that a logarithmic scale is used on the horizontal axis in figure XVIII. As a result, countries that provide significantly different amounts of core contributions may appear relatively close to each other in the figure. That uneven burden sharing has added importance, in view of the fact that core resources are found to subsidize support for and the management of activities financed from non-core resources, as illustrated in the previous section. |
图十八 | Figure XVIII |
2015 年核心捐助占国民总收入的比例 | Core contributions relative to gross national income: 2015 |
74. 一些会员国在经济及社会理事会对话中表示，需要进一步讨论和分析是否可能建立议定认捐机制，以改进核心供资的数量和责任分担状况。 | 74. During the Economic and Social Council dialogue, some Member States expressed the view that further discussion and analysis were required with regard to the potential for a negotiated pledging mechanism to improve the volume and burden sharing of core funding. |
C. 资金流动的透明度和问责制 | C. Transparency and accountability of funding flows |
75. 2013 年经合组织发展援助委员会捐助方调查19 的结果显示，核心与非核心供资之间的失衡日益加剧，影响这一现象的因素包括捐助方需要提高知名度、控制支出、加强问责制并对理事机构一级的决策权分配感到关切。因此，供资越来越多地被看作驱动职能和活动的手段。 | 75. The results of a 2013 OECD survey of Development Assistance Committee donors20 showed that the growing imbalance between core and non-core funding had been influenced by the contributors’ need for greater visibility, control over disbursements, enhanced accountability and concerns about the distribution of decision-making power at the level of the governing bodies. Funding, as a result, is increasingly seen as driving functions and activities. |
76. 近年来，许多联合国实体开发和/或大幅改进了公众可访问的在线系统，其中囊括捐助方捐助和支出分配数据。其他实体不妨采用相同做法，因为有了透明度文化，就能更好地衔接捐助方的喜好与实体的战略意图和优先工作事项。 | 76. In recent years, many United Nations entities have developed and/or significantly improved publicly accessible online systems that map data on donor contributions and expenditure allocations. Other entities may want to follow suit, given that a culture of transparency can also foster better alignment between the preferences of contributors and the strategic intent and work priorities of entities. |
77. 此外，还必须开发并加强这些在线系统，以确保在其中纳入关于国家、区域和全球各级人员配置和办事处开办的全面资料，以帮助说明并加强业务效率。更多信息使会员国能够支持治理决定，使问责制得到完善，增强会员国和联合国发展系统的相互信任。使用会员国熟悉的通用标准来公布此类信息，将促进上述努力。 | 77. In addition, it will be important to develop and strengthen those online systems to ensure that they include comprehensive information on staffing and office presence at the country, regional and global levels to help to illuminate and strengthen operational efficiencies. More information would enable Member States to support governance decisions, enable improved accountability and strengthen trust between Member States and the United Nations development system. Publishing such information using a common standard that is familiar to Member States would facilitate such efforts. |
78. 在这方面，全系统遵守 2030 年议程中提及的国际援助透明化倡议共同标准似乎是未来前进的方向。从方案国的角度看，遵守该标准可提供它们所需的信息，用以依据关于各行为体当前和今后提供资源的准确信息，编制预算和国家计划。此外，这还可使捐助国能够就自己提供的人道主义和发展援助资金的使用情况，加强对多边组织和其他组织的问责。还有证据表明，19 由于分拨的款项往往分散在政府各个不同的部委中，所以许多捐助国政府并不能全面了解自己为多边组织提供的所有支助。它们大多求助于筹资组织以获得此类信息，这突出说明，让联合国各实体采用通用标准报告资金流动情况是有益的。 | 78. System-wide compliance with the International Aid Transparency Initiative common standard, of which the 2030 Agenda took note, appears to be a way forward in this regard. From the point of view of programme countries, the standard provides the information that they need to generate budgets and national plans based on accurate information on current and future resources coming from various actors. The standard also allows contributing countries to hold multilateral and other organizations more accountable for the use of humanitarian and development aid flows that they provide. Evidence also suggests 20 that many contributing Governments do not have a comprehensive view of all the support that they provide to multilateral organizations, given that the allocations are often scattered across various ministries and departments within their administration. Many turn to the funding organization to obtain that information, which underscores the usefulness of having United Nations entities adopt a common standard for reporting on its funding flows. |
79. 2015 年，9 个联合国实体采用国际援助透明化倡议标准进行报告，但质量参差不齐。2016 年，另有 4 个实体成为倡议成员，表明它们致力于在近期开始采用该标准进行报告。在 2015 年被研究过的 46 个捐助方和组织中，开发署的援助透明度指数最高，20 儿基会排名第三。在努力提供及时、可比、分列和全面的活动信息方面，这两个实体提供了可供其他实体借鉴的良好实例。 | 79. In 2015, nine United Nations entities were reporting using the International Aid Transparency Initiative standard, but with varying degrees of quality. Four other entities became members of the Initiative in 2016, indicating a commitment to begin reporting using the standard in the near future. UNDP had the highest Aid Transparency Index21 among the 46 donors and organizations studied in 2015, while UNICEF ranked third. The two entities provide good examples that other entities can follow in their efforts towards providing timely, comparable, disaggregated and comprehensive information on their activities. |
80. 联合国透明度问题工作组也已设立，力求推动联合国在“国际援助透明化倡议”方面的集体工作，减少尚未参与这一倡议的联合国实体的准入障碍。 | 80. A United Nations working group on transparency has also been set up in an effort to leverage the collective work of the United Nations on the International Aid Transparency Initiative and reduce the barriers of entry for United Nations entities that have not yet engaged in the Initiative. |
81. 在国家一级，联合国发展系统必须继续努力，按照四年度全面政策审查的要求，在所有方案国建立共同预算框架并改进框架的质量，以支助发展方面业务活动的财务管理。应将在所有方案国充分实施中期共同预算框架视为最低要求，因为该框架为会员国提供了简化的参考文件，其中涵盖具体方案国在任一时间的供资情况，包括资金短缺之处。该框架也是制订联合资源调动战略的基本要求，将使联合国国家工作队能够通过确保筹措充足资源，更好地取得“一个联合国”国家方案的成果和产出。 | 81. At the country level, the United Nations development system must continue with efforts to develop and improve the quality of a common budgetary framework in all programme countries to support the financial management of its operational activities for development, as requested in the quadrennial comprehensive policy review. The full implementation of a medium-term common budgetary framework in every programme country should be viewed as a minimum requirement, given that it provides Member States with a simplified reference document that covers the funding situation in a programme country at a given point in time, inc luding where the shortfalls in funding lie. Such a framework is also a basic requirement for developing a joint resource mobilization strategy to enable United Nations country teams to better attain “One United Nations” country programme outcomes and outputs by ensuring that adequate resources are raised. |
82. 在机构一级，联合国一些实体最近已加紧努力，以各自战略计划确定的优先事项为基础，将所有预计资源合并到一个综合预算框架内。结合各组织的战略计划来提出综合预算，可加强资源和成果之间的联系。 | 82. At the corporate level, some United Nations entities have recently stepped up efforts to consolidate all projected resources within an integrated budgetary framework based on priorities determined in their respective strategic plans. Presenting the integrated budgets in conjunction with the strategic plans of organizations strengthens the linkages between resources and results. |
83. 必须加强统一做法，如国家一级的共同预算框架和机构一级的综合预算框架，以加强涉及 2030 年议程的报告工作。 | 83. It will be important to strengthen harmonized approaches, such as the common budgetary framework at the country level and integrated budgetary frameworks at the corporate level, in order to strengthen reporting in the context of the 2030 Agenda. |
84. 有必要将透明度作为联合国发展系统的核心业务原则，以便基于收集核心和非核心资金数量和分配情况信息(包括查明可用资金的缺口和类型)的框架，进行定期审查和知情讨论。鉴于各类资金组合可能不断发生变动，因此，框架需要有高质量，并定期更新，以便为更有活力的资源调动战略奠定基础，从而创造机会来把核心资金和其他灵活资金重新分配至供资不足的领域和/或主题。 | 84. Transparency will need to be a core operating principle of the United Nations development system in order to allow for regular reviews and informed discussions based on such frameworks that capture the volume and allocation of core and non-core funds, including identifying the gaps and the types of funding available. The frameworks will need to be of high quality and updated regularly to form the basis for more dynamic resource mobilization strategies, given that the mix of various types of funding will likely change continuously, thereby opening opportunities for reallocating core and other flexible funding to underfunded areas and/or themes. |
D. 筹资问题结构性对话 | D. Structured dialogues on financing |
85. 在联合国发展系统中，被严格指定用途的资金占比很高，这表明，对捐助有重大影响的是捐助方的具体优先事项，而不是各实体经政府间核准的战略计划和任务规定。这种情况会对各实体和整个系统以最有效和最高效的方式执行任务和开展核心活动的能力产生不利影响。结果是，联合国发展系统各项职能正越来越多地由所获资金的性质决定。 | 85. The high degree of strict earmarking in the United Nations development system indicates that contributions are influenced strongly by donor-specific priorities, rather than intergovernmentally approved strategic plans and mandates of entities. This is seen to negatively affect the ability of entities and the system as a whole to implement mandates and core activities in the most effective and efficient manner. As a result, the functions of the United Nations development system are increasingly being dictated by the nature of the funding that it receives. |
86. 三分之二的联合国实体正在进行的筹资问题结构性对话21 是联合国发展系统改革进程的一项关键内容。对话旨在更清楚地说明各组织战略计划概述的预期成果和影响以及为之供资的可用资源。这样的对话进程可通过在治理层面的实质性审议，大力加强目前的供资做法，以求使供资与各项职能保持一致，并反过来在联合国实体与会员国和其他利益攸关方之间建立信任。最终，只有赢得会员国和其他利益攸关方的信任，才能确保联合国发展系统的相关性。 | 86. The structured financing dialogues being conducted in two thirds of United Nations entities22 represent a key element in the reform process of the United Nations development system. The dialogues are aimed at providing greater clarity on expected outcomes and impact outlined in the strategic plans of organizations and the resources available to finance them. Such a dialogue process has the potential to significantly strengthen current funding practices towards the alignment of funding with functions through substantive deliberations at the level of governance, which, in turn, will build trust between United Nations entities and Member States and other stakeholders. In the end, it is the trust of Member Sta tes and other stakeholders that ensures the relevance of the United Nations development system. |
87. 在单个实体一级，筹资问题对话绝不应仅限于在执行局的一次定期会议上审议当前的供资状况和强调某个组织的主要供资挑战。经济及社会理事会关于联合国发展系统长期定位的对话得出的主要结论之一是，供资和治理相互关联，因此，筹资问题对话也必须涉及善政，探讨如何加强会员国对实体战略计划的主人翁意识，如何在透明和负责任地进行财务管理和报告的基础上，更好地使执行局发挥决策作用。 | 87. At the individual entity level, the financing dialogues must go well beyond considering the current funding situation and highlighting the main funding -related challenges of an organization during one of its regular executive board meetings. One of the key conclusions emanating from the Economic and Social Council dialogue on the longer-term positioning of the United Nations development system is that funding and governance are linked and that, consequently, such dialogues must also be about good governance, stronger ownership by Member States of the entity’s strategic plans and better enabling the decision-making role of the Executive Board based on transparent and accountable financial management practices and reporting. |
88. 作为第一步，经济及社会理事会对话强调，会员国应在治理层面明确各实体的核心职能和绝对优势，以通过互动进程，确定如何以最合理的方式为这些职能供资。 | 88. As a first step, it was underscored at the Economic and Social Council dialogue that, at the level of governance, Member States should establish clarity on the core functions and the absolute advantages of each entity to determine, through an interactive process, how those functions would be most logically funded. |
89. 在治理层面就各实体(随后就整个系统)的核心职能和所需资金达成共识，应成为可持续发展目标背景下联合国发展系统有效中长期定位的基础。最终，要由各实体和整个联合国发展系统来阐述理由，说明应提供什么资源、为什么应提供及以什么方式提供资源。 | 89. Consensus at the governance level on the core functions and funding requirements of entities and, subsequently, the system as a whole should become the foundation for the effective medium- and longer-term positioning of the United Nations development system in the context of the Sustainable Development Goals. It is ultimately up to the individual entities and the United Nations development system as a whole to make the case for what resources should be provided and why and in what fashion contributors should provide them. |
90. 一些实体已在这方面形成了良好作法。在国际农业发展基金(农发基金)和世界卫生组织(世卫组织)，结构性对话已成为会员国同高级管理当局就这两个组织的改革相关问题定期磋商的工具。农发基金和世卫组织经验都包含开展协同努力的内容，目的就在于增加会员国对战略计划和资源框架以及理事机构一级相关决定的主人翁意识。 | 90. Some entities have developed good practices in this area. In both the International Fund for Agricultural Development (IFAD) and the World Health Organization (WHO), the structured dialogues have served as a vehicle for regular consultations among Member States and the senior management on issues relating to reform of the organizations. Integral to the IFAD and WHO experiences has been a concerted effort to increase the ownership by Member States of the strategic plans and resource frameworks and related decisions at the level of governing bodies. |
91. 其他联合国实体不妨遵循并借鉴其中一些良好做法。这可以包括但不限于：深入审查上一个周期在执行实体工作方案方面取得的进展；查明新出现的战略问题；商定应用以指导新规划周期的目标；确定资源调动目标，包括供资质量和最适当的交付机制，并酌情提出会员国分担的建议；确保合理确定费用的归属，包括实现全额费用回收。 | 91. Other United Nations entities may wish to follow and build on some of those good practices. This could include, but is not limited to, conducting a thorough review of the progress made in implementing the work programme of an entity in the previous cycle; identifying emerging strategic issues; agreeing on objectives that should guide the new planning cycle; determining resource mobilization targets, including quality of funding and the most appropriate mechanisms for delivery, and where relevant, proposals for burden sharing among Member States; and ensuring the logical attribution of costs, including full cost recovery. |
92. 结构性对话还需要考虑预留空间来探讨创新办法，以调动大量额外资源，作为传统官方发展援助的补充。创新筹资机制具有潜力，可为联合国发展系统重塑工作方案筹资方法提供至关重要的契机，从而增强所获数量有限的传统资金的影响力。联合国各实体需要彼此合作，分享创新筹资机制方面的知识和最佳作法，并考虑到其他多边机构的经验。在这方面，必须开发工具，用以计量联合国发展系统有能力调动并导向可持续发展目标的新增资源数量，以便使会员国和其他利益攸关方充分了解并认识该系统的影响力和相关性。 | 92. The structured dialogues will also need to allow for the exploration of innovative options towards mobilizing significant additional resources to supplement traditional ODA. The potential of innovative financing mechanisms presents a critical opportunity for the United Nations development system to reshape its approach to financing its programme of work, therebyenhancing the impact of the limited traditional funding that it receives. United Nations entities need to work with each other to share knowledge and best practices with innovative funding mechanisms and to take into account the experiences of other multilateral institutions. In this regard, it will be essential to develop tools tha t are able to measure the volume of additional resources that the United Nations development system is able to leverage and direct towards the Sustainable Development Goals in order for Member States and other stakeholders to fully understand and appreciat e the impact and relevance of the system. |
93. 鉴于此类对话的重要性和潜力，不妨在执行局届会休会期间安排进行对话。对话还应综合、透明、包容，以创造机会，促进非传统国家和非国家行为体的参与和互动。 | 93. Given the importance and potential of such dialogues, it may be beneficial to schedule them in between Executive Board sessions. The dialogues also need to be integrated, transparent and inclusive by creating opportunities to involve and engage non-traditional State and non-State actors. |
六. 结论 | VI. Conclusion |
94. 《第三次发展筹资问题国际会议亚的斯亚贝巴行动议程》强调指出，资源充足、切合实际、连贯一致、有效率、有实效的联合国系统可在支持实现 2030 年议程方面发挥重要作用并拥有比较优势。在新的可持续发展目标时期，联合国发展系统可发挥特别重要的作用，以支助会员国执行全球规范和标准，引领思维，支持国家发展，参与人道主义和危机行动，帮助制定全球和区域政策，并应对需要采取集体行动的全球挑战。 | 94. The Addis Ababa Action Agenda of the Third International Conference on Financing for Development underlined the important role and comparative advantage of an adequately resourced, relevant, coherent, efficient and effective United Nations system in supporting the realization of the 2030 Agenda. The United Nations development system has a particularly important role to play in the new Sustainable Development Goals era in supporting Member States in implementing global norms and standards, providing thought leadership, supporting national development, engaging in humanitarian and crisis operations, supporting global and regional policy development and addressing global challenges that require collective action. |
95. 联合国实体要有效发挥这一作用，就必须在国家一级交付受需求驱动、适应国家需要、更加灵活且能提供可预测供资的成果。要做到这些，还必须重新评估联合国发展系统在国家、区域和全球各级的实际存在，以最大限度地实现资金效益。 | 95. For United Nations entities to play that role effectively, delivering demand-driven results at the country level that are tailored to national needs, are more flexible and provide predictable funding will be crucial. Doing so will also require reassessing the United Nations development system’s physical presence at the country, regional and global levels to maximize value for money. |
96. 正如本报告所强调的，目前的供资趋势大抵在朝着相反的方向发展，灵活性减少，可预测性降低，资源更加分散。联合国各实体的活动存在重叠和重复，而在确定并实施创新办法、调动更多资源、与其他发展行为体统一行动、支助实现发展目标等方面，潜力还远未实现。如果联合国发展系统继续主要依靠自身能力，通过尽量整合针对项目和针对部门的短期资金来支持实现可持续发展目标，那么它的相关性可能面临风险。 | 96. As highlighted in the present report, the current funding trends are, for the most part, moving in the opposite direction towards reduced flexibility, less predictability and more fragmentation of resources. There is some overlap and duplication among the activities of United Nations entities, and the potential for identifying and implementing innovative approaches capable of leveraging additional resources to support development objectives in an integrated manner with other development actors is far from being realized. If the United Nations development system continues to depend primarily on its ability to combine short-term project-targeted and sector-targeted funding as best it can to support the achievement of the Sustainable Development Goals, then its relevance may be at risk. |
97. 消除这样的风险是会员国和联合国发展系统的共同责任。经济及社会理事会关于发展系统长期定位的对话清楚表明，发展系统需要赢得会员国的信任和信心，并需为此提高透明度和问责制；加强实效、协调和一致性；通过共同的简化规划、方案拟订、业务和报告政策、工具和做法，提高效率；重新思考采取顺应国家需求、优先事项和能力的差别化存在模式，并为此加强协作安排，构建能利用不同实体优势的联合行动能力和资产；以灵活和符合各国需求、优先事项和能力的方式，重新思考系统的存在和支助；加强伙伴关系办法，为此发挥所有行为体的优势，并从供资办法转变为综合筹资战略。在管理单个实体和整个系统方面，会员国需要提供协调一致的指导，包括为此增强自己对战略计划的主人翁意识，并使自己的财政捐助与战略计划概述的成果更好地保持一致。 | 97. Addressing such risk is a shared responsibility of Member States and the United Nations development system. It was clearly indicated at the Economic and Social Council dialogue on the longer-term positioning of the development system that the system needs to build trust and confidence on the part of Member States by enhancing its transparency and accountability; strengthening itseffectiveness, coordination and coherence; bolstering efficiencies through common, simplified planning, programming, operational and reporting policies, instruments and practices; rethinking differentiated models of presence that respond to country needs, priorities and capacities with more collaborative arrangements, joined-up operational capacities and assets that build on different entities’ strengths; rethinking its presence and support in a manner that is flexible and tailored to countries’ needs, priorities and capacities; and enhancing partnership approaches by leveraging the strengths of all players and moving from funding to integrated financing strategies. For their part, Member States need to provide coherent guidance in their governance of individual entities and the system as a whole, including through their increased ownership of the strategic plans and better alignment of their financial contributions to the results outlined in those plans. |
(C) 120718 170718 | GE.18-08848(E) |
禁止酷刑委员会 | Committee against Torture |
关于卡塔尔第三次定期报告的结论性意见* | Concluding observations on the third periodicreport of Qatar* |
1. 禁止酷刑委员会在 2018 年 5 月 1 日和2 日举行的第 1627 和第 1630 次会议(见 CAT/C/SR.1627 和 1630)上审议了卡塔尔的第三次定期报告(CAT/C/QAT/3)，在 2018 年 5 月 15 日举行的第 1647 次和第 1648 次会议上通过了以下结论性意见。 | 1. The Committee against Torture considered the third periodic report of Qatar (CAT/C/QAT/3) at its 1627th and 1630th meetings (see CAT/C/SR.1627 and 1630), held on 1 and 2 May 2018, and adopted the following concluding observations at its 1647th and 1648th meetings, held on 15 May 2018. |
A. 导言 | A. Introduction |
2. 委员会赞赏缔约国接受简化的报告程序并提交定期报告，因为这改善了缔约国与委员会之间的合作，并将重点放在报告的审查以及与代表团的对话上。 | 2. The Committee expresses its appreciation to the State party for accepting the simplified reporting procedure and submitting its periodic report since it improves the cooperation between the State party and the Committee and focuses the examination of the report as well as the dialogue with the delegation. |
3. 委员会赞赏有机会与缔约国代表团进行建设性对话，以及对在报告审议期间所提出的问题和关切做出回应。 | 3. The Committee appreciates having had the opportunity to engage in a constructive dialogue with the State party’s delegation, and the responses provided to the questions and concerns raised during the consideration of the report. |
B. 积极方面 | B. Positive aspects |
4. 委员会赞扬缔约国为了更好地保护人权和适用《公约》而修改其政策和程序的举措，特别是：(a) 内阁会议 2018 年 3 月 14 日决定加入《公民权利和政治权利国际公约》和《经济、社会、文化权利国际公约》；(b) 2017 年设立打击人口贩运全国委员会；(c) 通过《第一个国家发展战略(2011-2016)》和《第二个国家发展战略(2017-2022)》，该战略涉及与教育、健康、环境、移民工人权利、妇女赋权和儿童权利相关的人权问题。 | 4. The Committee commends the State party’s initiatives to amend its policies and procedures in order to afford greater protection of human rights and apply the Convention, in particular: (a) The Council of Ministers’ decision of 14 March 2018 to accede to the International Covenant on Civil and Political Rights and the International Covenant on Economic, Social and Cultural Rights; (b) The establishment of the National Committee for Combating Human Trafficking, in 2017; (c) The adoption of the First National Development Strategy (2011–2016) and the Second National Development Strategy (2017–2022), which address human rights issues related to education, health, the environment, the rights of migrant workers, women’s empowerment and children’s rights. |
5. 委员会赞赏缔约国长期支持人权理事会的特别程序机制，该机制使独立专家得以在本报告所述期间访问该国。 | 5. The Committee appreciates that the State party maintains a standing invitation to the special procedure mechanisms of the Human Rights Council, which has allowed independent experts to carry out visits to the country during the reporting period. |
* 委员会第六十三届会议(2018 年 4 月 23 日至 5 月 18 日)通过。 | * Adopted by the Committee at its sixty-third session (23 April–18 May 2018). |
联 合 国 CAT/C/QAT/CO/3 | United Nations CAT/C/QAT/CO/3 |
禁止酷刑和其他残忍、不人道或有辱人格的待遇或处罚公约 | Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment |
4 June 2018 | 4 June 2018 |
C. 关注的主要问题及建议 | C. Principal subjects of concern and recommendations |
上一报告周期遗留的后续行动问题 | Pending follow-up issues from the previous reporting cycle |
6. 尽管委员会赞赏地注意到缔约国按照后续程序于 2014 年 3 月 10 日提供的信息(CAT/C/QAT/CO/2/Add.1)，但仍认为上一份结论性意见(CAT/C/QAT/CO/2)的第 10 段(基本法律保障)、第 14 段(投诉和及时、彻底和公正的调查)和第 19 段(对妇女的暴力行为，包括家庭暴力)中的建议未得到执行(分别见本文件第 13、23 和 45 段)。 | 6. While noting with appreciation the information provided by the State party on 10 March 2014 under the follow-up procedure (CAT/C/QAT/CO/2/Add.1), the Committee still considers that the recommendations included in paragraphs 10 (fundamental legal safeguards), 14 (complaints and prompt, thorough and impartial investigations) and 19 (violence against women, including domestic violence) of the previous concluding observations (CAT/C/QAT/CO/2) have not yet been implemented (see paras. 13, 23 and 45, respectively, of the present document). |
绝对禁止酷刑 | Absolute prohibition of torture |
7. 委员会感到关切的是，缔约国的法律中没有明确规定以确保禁止酷刑是绝对的和不容克减的。委员会还感到遗憾的是，缔约国继续对《公约》第 1 和第 16条持有定义模糊、范围不明的保留(第 1 条、第 2 条第 2 款、第 4 条和第 16 条)。 | 7. The Committee is concerned that there is no clear provision in the State party’s legislation to ensure that the prohibition of torture is absolute and non-derogable. It also regrets that the State party continues to maintain a vaguely defined reservation of imprecise scope to articles 1 and 16 of the Convention (arts. 1, 2 (2), 4 and 16). |
8. 缔约国应毫不含糊地重申绝对禁止酷刑，并公开宣布，对实施此类行为或被认定以其他方式同谋或默许酷刑的人，将追究其个人的法律责任，并将受到刑事起诉和适当的处罚。特别是，缔约国应该： | 8. The State party should unambiguously reaffirm the absolute prohibition of torture and publicly announce that anyone committing such acts or being found to be otherwise complicit or acquiescent in torture will be held personally responsible before the law for such acts and will be subject to criminal prosecution and appropriate penalties. In particular, the State party should: |
(a) 根据《公约》第 2 条第 2 款，确保其法律体现绝对禁止酷刑。《公约》第 2 条第 2 款规定，任何特殊情况，不论为战争状态、战争威胁、国内政局动荡或任何其他社会紧急状态，均不得援引为施行酷刑的理由。委员会提请缔约国注意其关于第 2 条执行情况的第 2(2007)号一般性意见第 5 段，除其他外，该段指出，特殊情况还包括任何恐怖主义行为或暴力犯罪的威胁以及国际或非国际武装冲突。此外，委员会在同一份一般性意见中指出，委员会拒绝任何违反该禁 | (a) Ensure that its legislation reflects the absolute prohibition of torture, in accordance with article 2 (2) of the Convention, which stipulates that no exceptional circumstances whatsoever, whether a state of war or a threat of war, internal political instability or any other public emergency, may be invoked as a justification for torture. The Committee draws the attention of the State party to paragraph 5 of its general comment No. 2 (2007) on the implementation of article 2, in which it states, inter alia, that exceptional circumstances also include any threat of terrorist acts or violent crime, as well as armed conflict, international or non-international. In addition, the Committee states in the same general comment that it rejects any religious or traditional justification that would violate that prohibition; |
(b) 根据《维也纳条约法公约》第十九条，进一步考虑撤回对《公约》第 1条和第 16 条的保留。 | (b) Give further consideration to withdrawing its reservation to articles 1 and 16 of the Convention, in accordance with article 19 of the Vienna Convention on the Law of Treaties. |
酷刑的刑事定罪 | Criminalization of torture |
9. 委员会注意到缔约国代表团提出的解释，即酷刑罪的最低刑罚为三年监禁(见《刑法典》第 22 条和第 159 条之二)，但委员会仍然关切酷刑行为的肇事者可能根据《刑法典》第 92 条获得减刑(第 1 条和第 4 条)。 | 9. While taking note of the explanations offered by the State party’s delegation that the crime of torture carries a minimum penalty of three years’ imprisonment (see arts. 22 and 159 bis of the Criminal Code), the Committee remains concerned that perpetrators of acts of torture may receive a reduced sentence under article 92 of the Criminal Code (arts. 1 and 4). |
10. 缔约国应根据《公约》第 4 条第 2 款的规定，确保酷刑罪能够受到考虑到其严重性质的适当处罚。 | 10. The State party should ensure that the crime of torture is punishable by appropriate penalties that take into account its grave nature, in accordance with article 4 (2) of the Convention. |
时效 | Statute of limitations |
11. 委员会感到关切的是，根据《刑事诉讼法典》第 14 条，酷刑罪有 10 年的时效。 | 11. The Committee is concerned that the crime of torture is subject to a statute of limitations of 10 years, pursuant to article 14 of the Code of Criminal Procedure. |
12. 缔约国应当确保对酷刑罪不设有任何时效限制，以排除因酷刑行为调查以及起诉和惩罚肇事者而导致有罪不罚的风险。 | 12. The State party should establish that there is no statute of limitations for the offence of torture, in order to preclude any risk of impunity in relation to the investigation of acts of torture and the prosecution and punishment of perpetrators. |
基本法律保障 | Fundamental legal safeguards |
13. 委员会注意到《宪法》和《刑事诉讼法典》中规定的程序保障措施，但对于针对剥夺自由后立即请求和接受独立体检的权利一直缺少明确规定这一点，委员会重申其关切。在这方面，委员会注意到代表团表示医务人员有义务记录和报告在体检期间发现的任何虐待证据。然而，委员会感到遗憾的是，缔约国没有说明在本报告所述期间医务人员报告的可能是酷刑或虐待案件的案件数量。委员会还感到关切的是，根据《刑事诉讼法典》第 117 条，被拘留者在法院受理之前，可被关押长达四天并在此基础上延续四天。此外，在可能损害国民经济的犯罪案件中，八天的期限可以延长一个或数个八天(第 2 条)。 | 13. The Committee takes note of the procedural safeguards set out in the Constitution and the Code of Criminal Procedure, but reiterates its concern about the continuous absence of an explicit provision on the right to request and receive an independent medical examination promptly upon deprivation of liberty. In this regard, the Committee notes the delegation’s assertion that medical personnel have an obligation to document and report any evidence of maltreatment observed during medical examinations. It regrets, however, that the State party did not indicate the number of cases reported by medical personnel as potential cases of torture or ill-treatment during the period under review. The Committee is further concerned that, under article 117 of the Code of Criminal Procedure, detainees can be held for as long as four days, renewable for another four days, before being brought before a judge. Moreover, in the case of crimes that may prejudice the national economy, the eight-day period can be extended for a similar period or periods (art. 2). |
14. 委员会重申其先前结论性意见(见 CAT/C/QAT/CO/2, 第 10 段)中的建议，即缔约国应采取有效措施，确保所有被拘留者从剥夺自由的那一刻起，能够根据国际标准在法律和实践中得到所有基本保障，这包括：无论是否应当局要求进行任何体检都能立即与独立医生联系的权利；以及及时得到法院审判的权利。缔约国还应对其《刑事诉讼法典》进行必要的修正，废除视犯罪情况对被拘留者拘留8 天或更长时间的规定，并根据国际标准再规定拘留的最长期限。 | 14. The Committee reiterates the recommendation contained in its previous concluding observations (see CAT/C/QAT/CO/2, para. 10) that the State party should take effective measures to ensure that all detainees are afforded, in law and in practice, all fundamental safeguards from the very outset of their deprivation of liberty, in conformity with international standards, including: the right to have immediate access to an independent medical doctor, regardless of any medical examination that may be conducted at the request of the authorities; and the right to be brought promptly before a judge. The State party should also make the necessary amendments to its Code of Criminal Procedure to abolish the provision under which detainees may be held in police custody for an eight-day period or longer, depending on the offence and introduce in its place a maximum period in line with international standards. |
国家安全和反恐立法 | National security and counter-terrorism legislation |
15. 委员会遗憾的是，缔约国尚未修订《保护社会法》(2002 年第 17 号法)，《打击恐怖主义法》(2004 年第 3 号法律，2017 年 7 月 20 号修正)和《国家安全局法》(2003 年第 5 号法)，上述法律扩大了没有经过充分司法审查的行政拘留的执行权，从而削弱了对被剥夺自由者的基本保障。根据《打击恐怖主义法》第18 条，在法院受理之前，嫌疑人可在无需逮捕令或司法监督的前提下被关押长达 15 天，并延长至六个月。同样，《国家安全局法》第 7 条允许嫌疑人在检察官受理之前被关押 30 天，《社会保护法》第 2 条允许在得到首相批准的前提下，对与“国家安全”和“体面或公共道德”有关的罪行进行长达一年的审前拘留。此外，根据《军事情报局成立法》(2004 年第 10 号法)第 7 条被捕的人可在检察官受理之前被拘留长达两个星期，如果是军队成员则可再延长两周；如果不是则可延长一周。委员会遗憾的是，尽管其提出过要求，但没有收到关于国家安全机构逮捕的人数信息和涉嫌违反《保护社会法》和《打击恐怖主义法》的人数信息，也没有收到有关定罪之前被逮捕时间长短的信息。与此同时，委员会继续收到关于任意拘留，长期单独监禁和虐待的报告，如 Mansoor al-Mansoori,Mohammad Meshab, Abdulrahman bin Omair Rashed al-Jabr al-Nuaimi 和Mohammed Rashid Hassan Nasser al-Ajami 的案件(第 2、第 11 和第 16 条)。 | 15. The Committee expresses its regret that the State party has not yet amended the provisions in the Law on the Protection of Society (Law No. 17 of 2002), the Law on Combating Terrorism (Law No. 3 of 2004, as amended on 20 July 2017) and the Law on the State Security Agency (Law No. 5 of 2003), which provide for broadened executive powers of administrative detention without adequate judicial review and thereby weaken the fundamental safeguards for persons deprived of their liberty. Under article 18 of the Law on Combating Terrorism, a suspect can be held for as long as 15 days, which may be extended up to six months, without a warrant or judicial oversight before being brought before a court. Similarly, article 7 of the Law on the State Security Agency allows for persons to be held for 30 days before being brought before the public prosecutor, and article 2 of the Law on the Protection of Society permits pretrial detention, with the approval of the Prime Minister, for up to one year for crimes related to “State security” and “decency or public morals”. In the same line, a person arrested under article 7 of the Law on the Establishment of the Military Intelligence Service (Law No. 10 of 2004) may be detained for up to two weeks before being brought before the public prosecutor, a period that can be extended for another two weeks in the case of members of the armed forces and for an additional week in the case of any other person. The Committee regrets that, despite its request, no information has been received on the number of persons arrested by the State security agency or on suspicion of violating the Law on the Protection of Society and the Law on Combating Terrorism or on the length of time that elapsed before they were charged with an offence. In this connection, the Committee has continued to receive reports of arbitrary detention, prolonged solitary confinement and ill-treatment, as in the cases of Mansoor al-Mansoori, Mohammad Meshab, Abdulrahman bin Omair Rashed al-Jabr al-Nuaimi and Mohammed Rashid Hassan Nasser al-Ajami (arts. 2, 11 and 16). |
16. 委员会回顾其先前的建议(见 CAT/C/QAT/CO/2, 第 11 段)，并促请缔约国立即审查其现行的国家安全和反恐法律，以废除上述提到的各项规定，使其法律符合《公约》和其他国际标准。缔约国应尤其确保：(a) 所有被拘留者，包括根据安全法拘留的被拘留者，都得到指控的告知，将他们的拘留记录登记在案并迅速送交法院审理；(b) 被羁押的被拘留者被允许在剥夺自由后立即与家人、律师和独立医生联系，当局提供这些保障措施的情况要得到有效监督；(c) 没有人被秘密拘留；(d) 单独监禁仅能在按照《联合国囚犯待遇最低限度标准规则》(《纳尔逊曼德拉规则》)第 43 至 46 条规定的前提下，作为特殊情况下的最后手段使用，使用时间尽可能短且受到独立审查，并且只能根据相应当局的授权。缔约国还应编制并定期公布关于使用单独监禁的相关数据。 | 16. The Committee recalls its previous recommendation (see CAT/C/QAT/CO/2, para. 11) and urges the State party to review without delay its existing national security and counter-terrorism laws with a view to repealing the provisions referred to above in order to bring legislation into conformity with the Convention and other international standards. In particular, the State party should ensure that: (a) All detainees, including those held under security laws, are informed about the charges against them, have their detention recorded in a register and are brought promptly before a judge; (b) Detainees taken into custody are permitted to contact family members, lawyers and independent doctors promptly following deprivation of liberty and that the provision of these safeguards by the authorities is monitored effectively; (c) No one is held in secret detention; (d) Solitary confinement is only used in exceptional cases as a last resort, for as short a time as possible and subject to independent review, and only pursuant to authorization by a competent authority, in accordance with rules 43 to 46 of the United Nations Standard Minimum Rules for the Treatment of Prisoners (the Nelson Mandela Rules). The State party should also compile and regularly publish comprehensive data on the use of solitary confinement. |
逼供 | Coerced confessions |
17. 委员会注意到《刑事诉讼法典》第 232 条规定的关于在胁迫或威胁下获得的证据不予采信的保障，但委员会遗憾的是，关于卡塔尔法院做出拒绝采信逼供证据的决定的资料很少。特别值得关注的是罗纳尔多·洛佩兹·乌勒普(RonaldoLopez Ulep)案件，乌勒普是一名被指控犯间谍罪的菲律宾国民，声称曾多次遭受酷刑逼供(第 2、第 15 和第 16 条)。 | 17. While taking note of the guarantees set forth in article 232 of the Code of Criminal Procedure regarding the inadmissibility of evidence obtained under duress or threat, the Committee regrets the scant information available on decisions taken by the Qatari courts to refuse confessions obtained under torture as evidence. Of particular concern is the case of Ronaldo Lopez Ulep, a Filipino national convicted on espionage charges, who claimed to have been repeatedly subjected to torture in order to force his confession (arts. 2, 15 and 16). |
18. 缔约国应采取有效步骤，确保在实践中通过酷刑或虐待获得的供词是不被采信的。它还应改进法官和检察官的职业培训方案，以确保他们有能力识别酷刑和虐待，并调查所有关于此类行为的指控。缔约国还应向委员会提供关于任何刑讯逼供获得的证词不被采信的案件的详细资料，并说明是否有任何官员因获得此类证词而受到起诉和惩罚。 | 18. The State party should take effective steps to ensure in practice that confessions obtained under torture or ill-treatment are ruled inadmissible. It should also expand vocational training programmes for both judges and prosecutors so as to ensure their ability to identify torture and ill-treatment and investigate all allegations of such acts. The State party should also provide the Committee with detailed information on any cases in which confessions were deemed inadmissible on the grounds that they were obtained through torture and indicate whether any officials have been prosecuted and punished for extracting such confessions. |
司法独立 | Independence of the judiciary |
19. 尽管委员会认可代表团提供的资料，其仍然对缔约国法官的独立程度保持关切，埃米尔享有在最高法院的建议下任命法官的专属权力，由于缺失国家和外国法官终身制，埃米尔有权以“公共利益”为由将其解雇，这对法官的独立性造成了严重破坏。委员会注意到代表团提供的关于外国法官的地位的解释，声称这些法官根据劳务合同工作并且其权利受到法令保护。但是，委员会仍然关切的是，有报告表明，外国法官是按照必须每年更新的临时合同招聘的，这引起了委员会对其独立性，公正性和不可撤销性的质疑(第 2 条)。 | 19. While acknowledging the information provided by the delegation, the Committee continues to be concerned about the level of independence of judges in the State party, which remains severely undermined by the Emir’s exclusive authority to appoint judges on the advice of the Supreme Council of the Judiciary, and the lack of security of tenure of both national and foreign judges, who can be dismissed by the Emir “in the public interest”. The Committee takes note of the explanations provided by the delegation regarding the status of foreign judges, who work under a labour contract and whose rights are protected by decree. However, it remains concerned at reports indicating that they are recruited under temporary contracts that have to be renewed annually, which raises questions about their independence, impartiality and irremovability (art. 2). |
20. 回顾其先前的建议(见 CAT/C/QAT/CO/2, 第 13 段)，并根据法官和律师独立性问题特别报告员的建议(见 A/HRC/29/26/Add.1, 第 95-102 段)，缔约国应按照国际标准，特别是《司法独立基本原则》(大会第 40/32 号和第 40/146 号决议)，采取一切必要措施确立和确保司法机关的独立性，包括保证其任期以及切断与行政部门的行政和其他关系。缔约国还应修改外国法官任命和任期的方式，以确保他们完全的独立性、自主性、公正性和不可撤销性。 | 20. Recalling its previous recommendation (see CAT/C/QAT/CO/2, para. 13), and in the light of the recommendations of the Special Rapporteur on the independence of judges and lawyers (see A/HRC/29/26/Add.1, paras. 95–102), the State party should adopt all measures necessary to establish and ensure the independence of the judiciary, including by guaranteeing their tenure in office and severing administrative and other ties with the executive branch, in conformity with international standards, notably the Basic Principles on the Independence of the Judiciary (General Assembly resolutions 40/32 and 40/146). The State party should also revise the modalities of the appointment and tenure of foreign judges, to ensure their total independence, autonomy, impartiality and irremovability. |
视察拘留中心 | Inspection of detention centres |
21. 尽管委员会注意到检察官办公室和内政部人权司开展的监狱检查活动，但遗憾的是，缔约国没有说明监狱当局或检察官就回应这些公共机构代表收到的建议和虐待投诉而采取的具体措施。委员会还感到遗憾的是，缔约国未说明国家人权委员会根据其监测活动提出的建议而采取的行动(第 2、第 11 和第 16 条)。 | 21. While taking note of the prison monitoring activities carried out by the Office of the Public Prosecutor and the Human Rights Department of the Ministry of the Interior, the Committee regrets that the State party has not provided information on the specific measures taken by prison authorities or prosecutors in response to the recommendations made and complaints of ill-treatment received by representatives of these public bodies. It also regrets the lack of information provided about the action taken by the State party in response to the recommendations issued by the National Human Rights Committee, generated by its monitoring activities (arts. 2, 11 and 16). |
22. 缔约国应： | 22. The State party should: |
(a) 确保有效落实就拘留中心包括国家安全部队管辖下的监测活动所提出的建议，并系统地收集监测员收到的任何虐待申诉结果的数据，以及因此类投诉所进行的任何调查和刑事或纪律程序； | (a) Ensure effective follow-up of recommendations arising from the monitoring activities at detention centres, including those under the authority of the State security forces, and systematically collect data on the outcome of any complaints of ill-treatment received by monitors, as well as on any investigations undertaken and criminal or disciplinary proceedings resulting from such complaints; |
(b) 确保国家人权事务委员会的人员能够在不事先通知或授权的情况下进入所有剥夺自由的地方，并确保该机构有足够的资源对所有拘留场所进行定期监测并跟进当局对提请他们注意的投诉的反应； | (b) Ensure that the personnel of the National Human Rights Committee are able to access all places of deprivation of liberty, without prior notice or authorization, and ensure that this institution has adequate resources to conduct regular monitoring of all places of detention and follow up on the response of authorities to complaints it brings to their attention; |
(c) 确保非政府组织通过特别是突击访问以及与被拘留者私下交谈的能力，畅通无阻地进入所有拘留场所； | (c) Ensure that non-governmental organizations have unhindered access to all places of detention through, in particular, unannounced visits and the ability to speak with detainees in private; |
(d) 考虑批准《禁止酷刑和其他残忍，不人道或有辱人格的待遇或处罚公约》的《任择议定书》。 | (d) Consider ratifying the Optional Protocol to the Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment. |
及时、彻底和公正的调查 | Prompt, thorough and impartial investigations |
23. 委员会关切地注意到，尽管委员会重申了其要求，但缔约国没有提供本报告所述期间内关于酷刑或虐待申诉案件的数量或相应调查和起诉的具体信息。委员会尚未收到关于对罪犯判刑以及刑事或纪律制裁的全面资料，也未收到有关被起诉的此类行为肇事者是否因为诉讼调查结果而被撤职的信息。(第 2、第 12 第13 和第 16 条)。 | 23. The Committee notes with concern that, despite its reiterated requests, the State party has not furnished specific information on the number of complaints of torture or ill-treatment or on the corresponding investigations and prosecutions during the reporting period. The Committee has not yet received comprehensive information about the sentences and criminal or disciplinary sanctions imposed on offenders, or an indication of whether the alleged perpetrators of those acts have been removed from public service pending the outcome of the investigation of the complaint (arts. 2, 12, 13 and 16). |
24. 委员会敦促缔约国： | 24. The Committee urges the State party to: |
(a) 确保所有关于酷刑或虐待的申诉都由一个独立机构以公正的方式迅速进行调查，该机构的调查人员与此类行为的嫌疑人之间没有任何机构或等级关系，并且嫌疑人得到应有的审判，如果被判有罪，将以与其行为严重程度相称的方式受到惩罚； | (a) Ensure that all complaints of torture or ill-treatment are promptly investigated in an impartial manner by an independent body, that there is no institutional or hierarchical relationship between the body’s investigators and the suspected perpetrators of such acts, and that the suspected perpetrators are duly tried and, if found guilty, punished in a manner that is commensurate with the gravity of their acts; |
(b) 确保有合理理由相信酷刑或虐待行为发生时，当局随时开展调查； | (b) Ensure that the authorities launch investigations whenever there are reasonable grounds to believe that an act of torture or ill-treatment has been committed; |
(c) 确保在涉嫌酷刑和/或虐待的情况下，嫌疑犯在调查期间立即被停职，特别是在如果不停职，他们有可能重复所指控的行为、对被指控的受害者进行报复或阻挠调查的情况下； | (c) Ensure that, in cases of alleged torture and/or ill-treatment, suspected perpetrators are suspended from duty immediately for the duration of the investigation, particularly when there is a risk that they might otherwise be in a position to repeat the alleged act, commit reprisals against the alleged victim or obstruct the investigation; |