五、坚持把预防性反恐放在第一位
V. Giving Top Priority to a Preventive Counterterrorism Approach文章源自英文巴士-https://www.en84.com/6802.html
文章源自英文巴士-https://www.en84.com/6802.html
恐怖主义和极端主义宣扬不同宗教、文化、社会之间的不容忍，挑战人类公正与尊严，破坏和平与安全，对人权和可持续发展造成严重危害。打击恐怖主义和去极端化，既是世界性问题，也是世界性难题。多年来，许多国家或地区结合自身实际，积极探索打击和预防恐怖主义、极端主义的具体路径和办法。中国在借鉴吸收国际社会反恐经验的基础上，积极响应联合国大会关于《联合国全球反恐战略》（60/288）的决议，致力于“消除恐怖主义蔓延条件，预防和打击恐怖主义”。新疆立足本地区实际，深入开展反恐怖主义、去极端化斗争，坚持“一手抓打击、一手抓预防”，既依法严厉打击暴力恐怖犯罪，又重视开展源头治理，通过着力改善民生、加强法制宣传教育、依法设立职业技能教育培训中心（以下简称“教培中心”）进行帮扶教育等多种方式，最大限度保障公民的基本人权免遭恐怖主义和极端主义侵害。文章源自英文巴士-https://www.en84.com/6802.html
文章源自英文巴士-https://www.en84.com/6802.html
Terrorism and extremism jeopardize human rights and sustainable development as they propagate intolerance between different religions, cultures and societies, challenge human justice and dignity, and do great harm to peace and security. Fighting terrorism and extremism is a common issue and arduous task faced by the entire world. For years, many countries and regions have been actively exploring concrete approaches and measures for combating and preventing terrorism and extremism that accord with their own conditions.文章源自英文巴士-https://www.en84.com/6802.html
文章源自英文巴士-https://www.en84.com/6802.html
Based on experience learned from the international community, China has been active in implementing the resolution of the United Nations General Assembly concerning the United Nations Global Counterterrorism Strategy (60/288), and has been working hard to wipe out the conditions conducive to the spread of terrorism and to prevent and combat terrorism. Based on its own conditions, Xinjiang has been making intensive counterterrorism and de-radicalization efforts. Upholding the principle of fighting and preventing terrorism at the same time, the autonomous region has been taking aggressive action against violent terrorist crimes, and at the same time, addressing the problem at its source. It has been making every effort to protect the fundamental human rights of citizens from violation by terrorism and extremism. Specific measures include improving public wellbeing, promoting knowledge of the law through education, and offering education and aid through vocational education and training centers in accordance with the law.文章源自英文巴士-https://www.en84.com/6802.html
文章源自英文巴士-https://www.en84.com/6802.html
着力保障和改善民生。做好保障和改善民生工作，事关群众福祉、社会和谐稳定。在新疆一些地区，过去受恐怖主义危害较大，宗教极端思想对群众生产生活渗透干扰严重，危及社会稳定、经济发展、民生安全。近年来，新疆贯彻以人民为中心的发展思想，着力保障和改善民生，大力推进就业、教育、医疗、社保等领域惠民工程。持续实施南疆3年（2018年至2020年）10万人转移就业计划，已实现深度贫困家庭劳动力转移就业7.5万人；通过发展劳动密集型产业带动就业、有组织转移就业、创业带动就业，2016年至2018年，新疆累计实现城镇新增就业140.08万人次，农村富余劳动力转移就业830.5万人次；大力普及九年义务教育，实行南疆城乡一体学前3年免费教育；落实全民免费健康体检，大病保险全覆盖，农村贫困人口15种大病集中救治和慢性病签约服务全覆盖；完善社会保障体系，城乡困难群众最低生活保障标准持续提高。人民生活不断改善，反恐维稳和去极端化工作的群众基础更加牢固。文章源自英文巴士-https://www.en84.com/6802.html
文章源自英文巴士-https://www.en84.com/6802.html
Making great efforts to ensure and improve public wellbeing. Public wellbeing is vital to people’s happiness and to social harmony and stability. In the past, some areas in Xinjiang suffered from terrorism, and religious extremism infiltrated people’s work and daily life, causing great damage and posing a threat to social stability, economic development, and security. In recent years, following a people-centered approach to development, Xinjiang has focused on ensuring and improving people’s standard of living and implementing projects that benefit the public in employment, education, medical care, social security, and other fields. These include:
- implementing the plan of transfer employment for 100,000 laborers in southern Xinjiang in three years (2018-2020) and having realized the transfer employment of 75,000 people from families suffering extreme poverty;
- adding a total of 1.4008 million new urban jobs and transferring 8.305 million surplus rural laborers for employment in Xinjiang from 2016 to 2018 through developing labor-intensive industries, organized transfer for employment, and creating jobs through business startups;
- popularizing nine-year compulsory education and providing free three-year preschool education in urban and rural areas in southern Xinjiang;
- offering free universal health check-up; ensuring full coverage of serious illness insurance, and ensuring full coverage of centralized treatment of 15 serious illnesses and contracted services for chronic illnesses for the poverty-stricken rural population;
- improving the social security system, and ensuring that the standard of subsistence allowance for impoverished urban and rural residents is raised continuously.
As people’s standard of living improves, the public will provide greater support to the government’s counterterrorism, de-radicalization and stability-maintaining effort.
普及法律知识、增强法治意识。新疆农村地区公民法治观念比较淡薄、法律知识贫乏，容易受到恐怖势力、极端势力的教唆和胁迫走上犯罪道路。新疆高度重视普法工作，出台了《新疆维吾尔自治区法制宣传教育条例》《关于加强自治区青少年法治教育实践基地建设工作的实施意见》《关于贯彻落实〈关于实行国家机关“谁执法谁普法”普法责任制的意见〉的实施意见》等法规文件。聚焦社会稳定和长治久安总目标，面向基层群众和青少年，以弘扬法治精神、培育法治信仰、推动法治实践为主要任务，以推进法治文化建设和法治创建为抓手，以传统媒体+互联网为传播平台，以建立完善基层法治文化公共设施体系为依托，广泛深入开展“基层法治建设年”“宪法法律宣传月”“全民国家安全教育日”“法治宣讲下基层”“国旗下讲法治”“巴扎普法”等多种形式的法治宣传活动，引导各族群众明辨合法与非法的界限，增强公民自觉抵御宗教极端思想渗透的能力。
Popularizing understanding of the law and strengthening the sense of the rule of law. Rural residents in Xinjiang have a relatively weak sense of the rule of law, lack understanding of the law, and are vulnerable to instigation and intimidation by terrorist and extremist forces, resulting in criminal behavior. Attaching great importance to popularizing understanding of the law, Xinjiang has issued a series of legal documents, including Regulations of Xinjiang Uygur Autonomous Region on Promoting Publicity and Education on the Law, Opinions on Developing Bases for Youth Education and Practice on the Rule of Law in Xinjiang Uygur Autonomous Region, and Opinions on Implementing the Guideline on Adopting a Responsibility System for State Organs with the Principle that Law-Enforcing Departments Are Responsible for Publicizing the Law.
Focusing on the overall goal of long-term social stability, Xinjiang has carried out various forms of publicity activities on the rule of law, including “Year of Community-level Promotion of Rule of Law”, “Month of Publicizing the Constitution and Other Laws”, “Day of Universal Education on State Security”, “Promotion of Rule of Law in Communities”, “Teaching Rule of Law under the National Flag”, and “Strengthening Public Legal Awareness at Bazaars”, so as to help people of various ethnic groups to distinguish between legal and illegal conducts and improve citizens’ abilities to consciously resist the infiltration of religious extremism. These activities are designed to influence the general public, including young people, with a goal of promoting the concept of rule of law, cultivating a belief in rule of law, and advancing the practice of rule of law. They focus on raising people’s awareness about the rule of law and development of institution. They use traditional media and internet as platforms and are supported by the establishment and improvement of a community-level public service network for promoting the rule of law.
积极开展帮扶教育。依法设立教培中心，教育挽救有轻微犯罪行为或违法行为人员，消除恐怖主义、极端主义的影响，避免其成为恐怖主义、极端主义的牺牲品，努力将恐怖活动消灭在未发之前、萌芽状态。目前进入教培中心的学员有三方面人员：一是被教唆、胁迫、引诱参与恐怖活动、极端主义活动，或者参与恐怖活动、极端主义活动情节轻微，尚不构成犯罪的人员。二是被教唆、胁迫、引诱参与恐怖活动、极端主义活动，或者参与恐怖活动、极端主义活动，有现实危险性，尚未造成实际危害后果，主观恶性不深，能够认罪悔过，依法可以免除刑罚，自愿接受培训的人员。三是因暴力恐怖、极端主义犯罪被定罪处刑，刑满释放前经评估仍有社会危险性，人民法院依法决定在刑满释放后进行安置教育的人员。对第一、第三种人员，根据《中华人民共和国反恐怖主义法》第二十九条、第三十条的规定，依法进行帮教和安置教育。对第二种人员，则本着宽严相济的刑事政策，打击少数、挽救多数，将认罪悔罪、自愿接受培训作为宽大处理的条件，在依法免除刑罚后对其进行帮教。
Actively providing help and aid through education. Education and training centers have been established with the goal of educating and rehabilitating people guilty of minor crimes or law-breaking and eradicating the influence of terrorism and extremism, in order to prevent them from falling victim to terrorism and extremism, and to nip terrorist activities in the bud.
At present, the trainees at the centers fall into three categories:
1. People who were incited, coerced or induced into participating in terrorist or extremist activities, or people who participated in terrorist or extremist activities in circumstances that were not serious enough to constitute a crime;
2. People who were incited, coerced or induced into participating in terrorist or extremist activities, or people who participated in terrorist or extremist activities that posed a real danger but did not cause actual harm, whose subjective culpability was not deep, who made confessions of their crimes and were contrite about their past actions and thus can be exempted from punishment in accordance with the law, and who have demonstrated the willingness to receive training;
3. People who were convicted and received prison sentence for terrorist or extremist crimes and after serving their sentences, have been assessed as still posing potential threats to society, and who have been ordered by people’s courts to receive education at the centers in accordance with the law.
In accordance with Articles 29 and 30 of the Counterterrorism Law of the People’s Republic of China, people in the first and third categories will be placed at the centers to receive support and education. With regard to people in the second category, a small number of them should be punished severely, while the majority should be rehabilitated in accordance with the policy of striking a balance between punishment and compassion. Confession, repentance, and willingness to receive training are preconditions for leniency, and these people will receive education to help reform their ways after they have been exempted from penalty in accordance with the law.
教培中心是依法设立的教育培训机构。通过与学员签订培养协议，明确约定培养目标、培养方式、结业标准、考核方式，在学员考核达标后颁发结业证书。教培中心设置了以学习国家通用语言文字、法律知识、职业技能和去极端化为主要内容的教学课程，配备了骨干教师、资深职业技师，统一制定教学方案、编印教学材料、建设讲课系统，分类施教、因人施教，实现授课学习的标准化和规范化。在学习培训过程中，实行由学习国家通用语言文字到学习法律知识，再到学习职业技能的正向进阶。
Education and training centers are institutions established in accordance with the law. They have clear goals and methods of training, criteria for program completion, and methods of assessment, which are stated in the agreements they signed with trainees. When trainees meet the standards of assessment, they will be presented with completion certificates. The centers’ curricula consist of standard spoken and written Chinese language, law, vocational skills, and courses on the eradication of extremism. They are staffed by quality teachers and senior vocational trainers. They formulate teaching plans, compile and print teaching materials, and develop teaching systems in a unified manner. They offer tailored and even individualized education to different types of trainees. Teaching and studying at the centers have been standardized. A step-by-step approach has been adopted in the process of study and training, which begins with learning standard spoken and written Chinese language, then moves on to studying the law, and concludes with learning vocational skills.
针对部分学员受宗教极端思想影响，受教育程度低，使用国家通用语言文字水平差，接受现代知识、交流交往能力弱等问题，教培中心充分保障宪法赋予公民的学习和使用国家通用语言文字的权利，为其提供学习条件。通过教育培训，学员们提升了使用国家通用语言文字的能力，拓宽了获取现代知识和信息的渠道，认识到学好国家通用语言文字，才能更好适应现代社会发展。
In view of the fact that some trainees have been influenced by religious extremism, have not received good education, are weak in the use of standard spoken and written Chinese language, slow in acquiring modern knowledge, and have poor communication skills, the centers fully ensure citizens’ constitutional right to learn and use standard Chinese language and provide conditions for them to learn. Through education and training, the trainees have improved their competence in the use of standard Chinese language and broadened their channels to acquire modern knowledge and information. They have realized that only by mastering standard Chinese language can they better adapt to contemporary society.
针对学员普遍缺乏法治意识的问题，教培中心将学习法律知识作为培养学员增强国家意识、公民意识、法治意识的关键环节。聘请法官、检察官、律师等讲授《中华人民共和国宪法》《中华人民共和国刑法》《中华人民共和国民法总则》《中华人民共和国婚姻法》《中华人民共和国教育法》《中华人民共和国反恐怖主义法》《中华人民共和国治安管理处罚法》和《新疆维吾尔自治区去极端化条例》等法律法规。许多学员以前受宗教极端思想影响，将恐怖主义、极端主义歪曲炮制的“教法、家法”当作行为准则，无视国家法律，甚至干扰破坏法律的实施。通过学习，学员们普遍认识到作为国家公民必须遵守国家宪法法律，按照宪法法律赋予的权利和义务行事。
In view of the fact that the trainees have a weak awareness of rule of law, the centers regard an understanding of the law as a key link in helping the trainees to increase their sense of state, citizenship, and rule of law. They have invited judges, public procurators, and lawyers to give lectures on laws and regulations such as the Constitution of the People’s Republic of China, Criminal Law of the People’s Republic of China, General Provisions of the Civil Law of the People’s Republic of China, Marriage Law of the People’s Republic of China, Education Law of the People’s Republic of China, Counterterrorism Law of the People’s Republic of China, Public Security Administration Punishment Law of the People’s Republic of China, and Regulations of Xinjiang Uygur Autonomous Region on De-radicalization. Many trainees were influenced by religious extremism and their conducts closely followed the “religious law” and “domestic discipline” concocted by terrorists and extremists. They defied the law of the state, and even interfered with and sabotaged the implementation of state law. Through study, the trainees have realized that as citizens they have an obligation to abide by the Constitution and laws of the state and they should conduct themselves in accordance with the rights and obligations endowed to them by the Constitution and laws.
针对部分学员缺乏职业技能、就业困难等问题，教培中心将学习职业技能作为提升学员就业能力的重要途径，根据当地需求和就业条件，设置服装鞋帽加工、食品加工、电子产品组装、排版印刷、美容美发、电子商务等培训课程，对其中有愿望有条件的学员进行多技能培训，确保学员结业后能够熟练掌握1－2门职业技能。教培中心注重将课程学习与实训操作相结合，提高了学员实际操作能力。通过培训，学员们初步掌握了就业技能，部分学员已结业并实现就业。
In view of the fact that some trainees lack vocational skills and have difficulties finding employment, the centers regard learning vocational skills as an important way to enhance trainees’ ability to find work. Based on local demand and employment conditions, they set up training programs in the making of garments, footwear and hats, food processing, assembly of electronic products, typesetting and printing, cosmetology and hairdressing, e-business, and other courses. To those who have the will to learn multiple skills and meet the relevant qualifications, they provide such training as to ensure that the trainees can master one or two vocational skills upon completing their study at the centers. The centers attach importance to the integration of study and practice, and have elevated trainees’ practical abilities. Through training, trainees have gained rudimentary vocational skills, and some of them have completed their study at the centers and found jobs.
针对学员不同程度地受宗教极端思想影响的问题，教培中心将去极端化纳入教育培训全过程，通过分阶段学习法律法规、民族宗教政策和宗教知识，揭露恐怖主义、极端主义的危害，使学员深刻认识到宗教极端思想完全违背了宗教教义，是民族分裂主义和暴力恐怖主义的思想基础，从而认清了恐怖主义、极端主义的本质和危害，摆脱了恐怖主义和宗教极端思想的影响和控制。
In view of the fact that trainees have been influenced by religious extremism to various degrees, the centers integrate de-radicalization into the whole process of education and training. Through progressive study of laws and regulations, policies on ethnic and religious affairs, and religious knowledge, and through unveiling the hazards of terrorism and extremism, trainees have realized that religious extremism is totally against religious doctrines and constitutes the ideological base of ethnic separatism and violent terrorism. They gain a thorough understanding of the very nature and perils of terrorism and extremism, and free themselves from the influence and control of ideological terrorism and extremism.
教培中心实行寄宿制管理，配备辅导员、医生和后勤服务管理人员等，保障学员正常学习生活。学员可定期回家，有事请假。教培中心建有室内外体育文化活动场所，经常举办丰富多彩的文体娱乐活动。教培中心充分尊重和保护不同民族学员的风俗习惯，关心学员心理健康，提供心理咨询服务，帮助解决实际困难。教培中心根据国家法律规定，实行教育与宗教相分离，在校学员不得在校内组织、参加宗教活动。
The centers adopt a boarding school management system, and are staffed with instructors, doctors and personnel for logistic services and management to provide trainees with a normal study and life routine. Trainees can have home visits on a regular basis and can ask for leave to attend to private affairs. The centers are equipped with indoor and outdoor sports and cultural facilities and regularly hold such activities. The centers fully respect and protect the customs and habits of trainees of different ethnic groups, care for their mental health, offer psychological counseling services, and help them solve real-life problems. In accordance with the law, the centers adopt a policy of separating education and religion. Trainees may not organize and participate in religious activities at the centers.
由于有效采取了预防性反恐措施，近年来新疆社会环境发生了明显变化，正气上升，邪气下降，公民法律意识明显增强，追求现代科学技术知识和文明生活方式成为社会风尚，宗教极端思想传播受到自觉抵制，各民族交往交流交融更为紧密，人民群众的获得感、幸福感、安全感显著提升。
Thanks to these preventive measures, Xinjiang has witnessed a marked change in the social environment in recent years. A healthy atmosphere is spreading, while evil influences are declining. The citizens’ legal awareness has been notably enhanced. The trend in society is now to pursue knowledge of modern science and technology and a cultured way of life. Citizens now consciously resist religious extremism. The ethnic groups of Xinjiang now enjoy closer relations through communication, exchange and blending. People have a much stronger sense of fulfillment, happiness and security.
