一、反恐怖主义法律制度体系日臻完善
I. An Improving Legal Framework for Counterterrorism文章源自英文巴士-https://www.en84.com/15179.html
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自20世纪60年代以来，在联合国及其专门机构和关联组织主持下，国际社会陆续制定了13项全球性反恐怖主义公约，表明全球对打击恐怖主义的基本立场和态度。从20世纪70年代末开始，为加强国际合作，有效防范和惩治恐怖活动，中国相继加入或批准了《关于在航空器内的犯罪和犯有某些其他行为的公约》《关于制止非法劫持航空器的公约》《统一国际航空运输某些规则的公约》等。20世纪90年代以来，中国立足本国国情，坚持宪法原则，借鉴学习国际社会有益经验，加快了国内反恐怖主义法律制度体系建设进程。文章源自英文巴士-https://www.en84.com/15179.html
文章源自英文巴士-https://www.en84.com/15179.html
Headed by the UN, its specialized agencies, and some other international organizations, the international community has formulated 13 global counterterrorism conventions since the 1960s, demonstrating its position and attitude on counterterrorism.文章源自英文巴士-https://www.en84.com/15179.html
文章源自英文巴士-https://www.en84.com/15179.html
To strengthen international cooperation and effectively prevent and combat terrorist activities, China has joined or ratified a number of conventions since the late 1970s, including the Convention on Offences and Certain Other Acts Committed on Board Aircraft, Convention for the Suppression of Unlawful Seizure of Aircraft, and Convention for the Unification of Certain Rules for International Carriage by Air. In light of its national conditions, and following constitutional principles, China has drawn on useful experience from the international community and accelerated its efforts to build a domestic counterterrorism legal framework since the 1990s.文章源自英文巴士-https://www.en84.com/15179.html
文章源自英文巴士-https://www.en84.com/15179.html
——修改完善刑事法律。恐怖活动犯罪是国际公认的严重刑事犯罪，是各国刑法打击的重点。1997年3月，全国人民代表大会修改《中华人民共和国刑法》，新增组织、领导、参加恐怖组织罪，并加大了对相关恐怖活动犯罪的处罚力度。2001年美国“9·11”事件后，世界各国迅速采取有效措施打击恐怖主义。同年12月，全国人大常委会通过《中华人民共和国刑法修正案（三）》，专门完善恐怖活动犯罪刑法条款，明确刑法适用，对刑法作出八条补充修改。其中，为落实联合国安理会第1373号决议，增设资助恐怖活动犯罪。同时，为惩治涉及恐怖活动洗钱的犯罪活动，将恐怖活动犯罪纳入洗钱罪的上游犯罪。2006年6月，全国人大常委会通过《中华人民共和国刑法修正案（六）》，在相关条款中进一步完善了为恐怖活动犯罪洗钱的罪刑规定。2015年8月，针对暴力恐怖犯罪出现的新情况、新问题，全国人大常委会通过《中华人民共和国刑法修正案（九）》，增设准备实施恐怖活动罪，宣扬恐怖主义、极端主义、煽动实施恐怖活动罪以及利用极端主义破坏法律实施罪等罪名，并明确相关罪状，细化刑罚适用。文章源自英文巴士-https://www.en84.com/15179.html
文章源自英文巴士-https://www.en84.com/15179.html
– Amending and improving the criminal laws.
Terrorism is viewed by the international community as a serious criminal offense, and is therefore a highlighted target of criminal laws in all countries.
In March 1997, China’s National People’s Congress (NPC) amended the Criminal Law, adding the crimes of forming, leading, or participating in a terrorist organization, and tightening sanctions for crimes of terrorism.
After the September 11 attacks in the United States in 2001, many countries took prompt and effective measures to combat terrorism. In December the same year, China’s NPC Standing Committee adopted Amendment III to the Criminal Law, which consists of eight revisions and additions for improving and clarifying provisions on terrorist activities. One of the additions relates to the crime of financing terrorism. This was part of China’s effort to implement UN Security Council Resolution 1373.
At the same time, to sanction money laundering for terrorist activities, China prescribed terrorism as a predicate crime of money laundering. In June 2006, the NPC Standing Committee adopted Amendment VI to the Criminal Law, which further clarifies penalties on money laundering for terrorist activities. In response to new developments and issues in the crime of terrorism, in August 2015 the NPC Standing Committee adopted Amendment IX to the Criminal Law, adding to it the crimes of preparing for terrorist activities, advocating terrorism and extremism, inciting terrorism, and using extremism to undermine law enforcement, while also clarifying relevant charges and penalties.
此外，2012年、2018年全国人大及其常委会先后两次修改《中华人民共和国刑事诉讼法》。其中，为适应惩治恐怖活动犯罪的需要，对恐怖活动犯罪侦查、起诉、审判程序等方面作出特别规定。最高人民法院、最高人民检察院单独或者联合制定发布一系列司法解释，进一步规范打击恐怖活动犯罪的法律适用和诉讼程序。
In 2012 and 2018, the NPC and its Standing Committee amended the Criminal Procedure Law to add provisions on the investigation, prosecution, and trial procedures for crimes of terrorism. The Supreme People’s Court and the Supreme People’s Procuratorate have independently or jointly formulated and issued a series of judicial interpretations to further standardize the application of law and prosecution procedures for combating crimes of terrorism.
——开展反恐专门立法。进入21世纪以来，世界范围内接连发生一系列重大恐怖袭击事件，各国纷纷制定反恐怖主义法，或者修订完善原有法律。2011年10月，为加强反恐怖主义工作，保障国家安全、维护社会稳定、保护人民生命财产安全，全国人大常委会通过关于加强反恐怖工作有关问题的决定，对恐怖活动的定义、反恐怖工作领导机构及其职责、恐怖活动组织和人员认定及名单公布、开展反恐怖国际合作等作出规定，为后续立法工作打下坚实基础。
– Making a counterterrorism law.
Since the beginning of the 21st century, a series of horrendous terrorist attacks have occurred around the world. In response, many countries have made their own counterterrorism law, or amended existing laws. In October 2011, to strengthen counterterrorism, safeguard national security, maintain social stability, and protect people’s lives and property, the NPC Standing Committee adopted the Decision on Issues Related to Strengthening Counterterrorism Work, which defines the concept of terrorism, the leading state counterterrorism body and its duties, the determination of terrorist organizations and individuals, the publication of lists of these organizations and individuals, and the principles for international cooperation. This laid a solid foundation for subsequent legislation.
2011年至2014年间，国际恐怖主义愈演愈烈，多国接连发生一系列重大恐怖袭击事件，境内外民族分裂势力、宗教极端势力、暴力恐怖势力连续在新疆、北京、云南等多地制造一系列暴力恐怖案（事）件，严重践踏人类尊严。2014年4月，为总结治理恐怖活动犯罪经验，完善反恐怖主义工作机制，坚决遏制暴恐活动多发、频发、蔓延态势，国家反恐怖主义工作领导机构牵头多部门，在实地调查、研究论证、广泛听取征求各方意见建议基础上，起草反恐怖主义法。2014年10月，全国人大常委会对《中华人民共和国反恐怖主义法（草案）》进行初次审议，会后将草案全文面向社会公开征求意见，并进行修改。2015年2月和12月，全国人大常委会对《中华人民共和国反恐怖主义法（草案）》分别进行第二、第三次审议，均对草案进行完善。2015年12月27日，全国人大常委会通过《中华人民共和国反恐怖主义法》。该法作为反恐怖主义的专门性、综合性法律，对中国反恐怖主义工作的基本原则和立场、恐怖活动组织和人员的认定、安全防范、情报信息、调查、应对处置、国际合作、保障措施、法律责任等作出全面规定，为防范和惩治恐怖活动提供了有力的法律保障。2018年4月，全国人大常委会修正《中华人民共和国反恐怖主义法》，进一步明晰行业主管部门职责，促进反恐怖主义工作的有效开展。
Between 2011 and 2014, terrorist attacks hit multiple countries, signaling a resurgence of terrorism worldwide. Forces of terrorism, separatism and extremism, both within and outside China, carried out violent terrorist acts in Xinjiang, Beijing, Yunnan, and other places.
From April 2014, to summarize the experience against crimes of terrorism, improve the counterterrorism mechanism, and curb frequent and widespread acts of violence and terrorism, the leading state counterterrorism body led several other departments in conducting field investigations, research and argumentation, soliciting opinions and suggestions from all parties, and drafting a counterterrorism law. In October 2014, the NPC Standing Committee held the first deliberations on the draft law, published it in full to the public for suggestions, and made revisions. In February and December 2015, it deliberated on the draft law for the second and third rounds to improve it. On December 27, 2015, the NPC Standing Committee adopted the Counterterrorism Law. It is a comprehensive counterterrorism law that defines China’s basic principles and stance on counterterrorism. By specifying provisions on the determination of terrorist organizations and individuals, security protection, intelligence information, investigation, response and handling, international cooperation, safeguard measures, and legal liability, it provides a strong legal guarantee for preventing and punishing terrorist activities. In April 2018, the NPC Standing Committee amended the law to further clarify the responsibilities of competent departments and facilitate effective counterterrorism work.
——完善其他相关法律。为在反恐怖主义实践中加强不同法律之间的系统性配合，填补法律漏洞，补齐短板，形成合力，中国不断对相关法律中涉及反恐怖主义的具体内容进行完善。例如，2006年通过的《中华人民共和国反洗钱法》对预防和遏制恐怖主义融资及相关违法犯罪活动作出规定；2015年通过的《中华人民共和国国家安全法》对打击恐怖主义和极端主义作出规定；2016年通过的《中华人民共和国网络安全法》对不得利用网络宣扬恐怖主义、极端主义等作出规定；2020年修订的《中华人民共和国国防法》对依法运用武装力量打击恐怖主义等作出规定，《中华人民共和国人民武装警察法》对武警部队参与防范和处置恐怖活动的任务作出规定；2020年通过的《中华人民共和国香港特别行政区维护国家安全法》对与香港特别行政区有关的恐怖活动犯罪及其处罚作出规定。
– Improving other relevant laws.
China has made consistent efforts to upgrade the counterterrorism provisions of relevant laws to strengthen systematic coordination among different laws, close legal loopholes, improve areas of weakness, and form synergy in counterterrorism practice:
The Anti-Money Laundering Law, adopted in 2006, provides for the prevention and suppression of terrorist financing and related illegal and criminal activities. The National Security Law, adopted in 2015, provides for the fight against terrorism and extremism. The Cybersecurity Law, adopted in 2016, prohibits the use of the internet to advocate terrorism and extremism. The National Defense Law, amended in 2020, provides for the lawful use of armed forces in combating terrorism. The Law on the People’s Armed Police, amended in 2020, provides for the People’s Armed Police Force to perform the tasks of preventing and responding to terrorist activities. The Law on Safeguarding National Security in the Hong Kong Special Administrative Region enacted in 2020 contains provisions on combating crimes of terrorism in the region and defined the relevant penalties.
——健全有关行政法规。为不断适应反恐怖主义工作实践需要，加强相关行政部门开展反恐怖主义工作的协调配合，压实各方责任，中国政府持续健全完善相关行政法规中涉及反恐怖主义工作的条款。例如，2000年通过的《互联网信息服务管理办法》对不得制作、复制、发布、传播含有散布恐怖内容的信息作出规定；2017年修订的《宗教事务条例》对任何组织和个人不得利用宗教进行恐怖活动作出规定；2023年通过的《未成年人网络保护条例》对不得制作、复制、发布、传播含有恐怖主义、极端主义等危害未成年人身心健康内容的网络信息作出规定。
– Improving relevant administrative regulations.
The Chinese government has continued to improve counterterrorism provisions of relevant administrative regulations to meet practical counterterrorism needs, strengthen coordination and cooperation among relevant administrative bodies, and define the responsibilities of all parties:
The Administrative Measures for Internet Information Services, adopted in 2000, ban the production, reproduction, publication and distribution of content that spreads terror. The Regulations on Religious Affairs, amended in 2017, stipulate that no organization or individual may use religion to carry out terrorist activities. Regulations on the Protection of Minors in Cyberspace adopted in 2023 ban the production, reproduction, publication and distribution of information online containing content of terrorism and extremism that will damage the physical and mental health of minors.
——新增相关地方性法规。2016年反恐怖主义法施行后，依据《中华人民共和国宪法》《中华人民共和国立法法》赋予的地方立法权限，新疆、浙江、湖南、上海、四川、福建、北京等地结合本地实际，陆续制定关于在本行政区域实施反恐怖主义法的办法，新疆还专门制定《新疆维吾尔自治区去极端化条例》，细化工作措施手段，增强了可操作性。此外，部分地区还在制定宗教事务条例、平安建设条例等地方性法规的过程中，规定了加强反恐怖主义工作的内容。
– Making new local regulations.
After the Counterterrorism Law came into force in 2016, Xinjiang, Zhejiang, Hunan, Shanghai, Sichuan, Fujian, Beijing, and some other localities developed measures on the enforcement of the law within their respective administrative regions in light of local realities and in accordance with the local legislative authority conferred by the Constitution and the Legislation Law. Xinjiang formulated the Regulations of Xinjiang Uygur Autonomous Region on Deradicalization, with detailed work measures and means to make the law more practicable. In addition, some localities added content on strengthening counterterrorism work when formulating local regulations on religious affairs and public security.
——制定部门与地方政府规章。为更好落实反恐怖主义相关法律法规，做好本领域、本地区反恐怖主义工作，相关部门和地方政府依据法定权限与程序，相继制定符合本领域和本地区实际需要、涉及反恐怖主义工作的有关规章。例如，2014年中国人民银行、公安部与国家安全部联合制定的《涉及恐怖活动资产冻结管理办法》，对涉及恐怖活动资产冻结的程序与行为作出专门规定；2021年青海省人民政府通过的《青海省铁路安全管理办法》，对建立反恐怖主义指挥协调机制、加强防范恐怖袭击能力建设等作出规定。
– Formulating departmental and local government rules.
To better implement counterterrorism-related laws and regulations and improve counterterrorism work in respective sectors or localities, central departments and local governments have formulated counterterrorism rules that meet their specific needs in accordance with statutory authority and procedures:
In 2014, the People’s Bank of China, Ministry of Public Security, and Ministry of State Security formulated the Administrative Measures for the Freezing of Assets Relating to Terrorist Activities, with provisions on the procedures and actions for freezing terrorism-related assets. In 2021, the Qinghai provincial government adopted the Administrative Measures of Qinghai Province for Railway Safety, with provisions on establishing a counterterrorism command and coordination mechanism and building the capacity to guard against possible terrorist attacks.
历经40余年探索与实践，中国以宪法为根本，逐步形成以反恐怖主义法为主体，刑事法律为骨干，国家安全法等为保障，其他法律为补充，涵盖行政法规、司法解释、地方性法规、部门规章与地方政府规章等的反恐怖主义法律制度体系。
Relying on more than 40 years of experience, China has gradually formed a counterterrorism legal framework based on the Constitution. With the Counterterrorism Law as the centerpiece and the criminal laws and National Security Law playing major roles and other laws as supplements, it also covers administrative regulations, judicial interpretations, local regulations, and departmental and local government rules.
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