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19 April 2016ChineseOriginal: English6 220416 | 16-06232 (E) 200416 220416 |
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2016 年 4 月 15 日秘书长给安全理事会主席的信 | Letter dated 15 April 2016 from the Secretary-General addressed |
2016 年 4 月 15 日秘书长给安全理事会主席的信 | to the President of the Security Council |
应安全理事会在其第 2279(2016)号决议中提出的请求，谨提交旨在根据联合国人权尽职政策监测安全局势、促进对人权的尊重和推动法治而部署待提供的联合国警察人员以增强联合国能力的方案(见附件)。 | As requested by the Security Council in its resolution 2279 (2016), I have the honour to transmit options for the deployment of a United Nations police contribution to increase the United Nations capacity to monitor the security situation, promote the respect of human rights and advance the rule of law, in compliance w... |
请提请安全理事会成员注意此信及其附件为荷。 | I should be grateful if you could bring the present letter and its annex to the attention of the members of the Security Council. |
潘基文(签名) | (Signed) BAN Ki-moon |
附件 | Annex |
部署待提供的联合国警察人员方案 | Options for the deployment of a United Nations police contribution |
1. 安全理事会第 2279(2016)号决议请我与布隆迪政府协商并与非洲联盟协调，在 15 天内提出“部署待提供的联合国警察人员以增强联合国能力的方案，以便根据联合国人权尽职政策监测安全局势，促进对人权的尊重和推动法治。” | 1. By its resolution 2279 (2016), the Security Council requested me to present within 15 days, in consultation with the Government of Burundi and in coordination with the African Union, options for the deployment of a United Nations police contribution to increase the United Nations capacity to monitor the security sit... |
联合国在布隆迪的参与 | United Nations engagement in Burundi |
2. 为应对布隆迪政治危机，2015 年 11 月，安全理事会通过了第 2248(2015)号决议，其中除其他外安理会请我“在 15 天内向安全理事会通报最新情况，包括提出联合国今后在布隆迪派驻人员的方案，并定期通报布隆迪局势，特别是安全情况、侵犯和践踏人权行为以及煽动暴力侵害或仇视布隆迪社会不同群体的行为。”安理会还邀请我“在布隆迪部署一个小组，与布隆迪政府、非洲联盟和其他伙伴协调合作，评估局势和提出处理政治和安全问题的方案。” | 2. In response to the political crisis in Burundi, in November 2015 the Security Council adopted resolution 2248 (2015), in which the Council requested me, inter alia, to update the Security Council within 15 days, including by presenting options on the future presence of the United Nations in Burundi, and then regular... |
3. 根据第 2248(2015)号决议，我 2015 年 12 月 1 日向安全理事会主席发函(S/2015/926)阐述了联合国今后在布隆迪派驻人员的方案。这些方案包括根据《联合国宪章》第七章部署多层面综合维持和平行动和建立全面综合政治特派团。我在该函件中通知主席，我将部署安全理事会第 2248(2015)号决议第 7 段授权成立的特别顾问支助小组。 | 3. Pursuant to resolution 2248 (2015), I submitted a letter dated 1 December 2015 to the President of the Security Council (S/2015/926), in which I outlined options for the future United Nations presence in Burundi. The options included the deployment of a multidimensional integrated peacekeeping operation under Chapte... |
4. 安全理事会第 2279(2016)号决议请我加强联合国在布隆迪的参与，加强我的预防冲突特别顾问的团队，以便与布隆迪政府和其他相关利益攸关方合作，为决议第 5 段所述布隆迪人之间的对话以及在安全和法治领域提供支助。 | 4. In its resolution 2279 (2016), the Security Council requested me to enhance the United Nations engagement in Burundi by strengthening the team of my Special Adviser in order to work with the Government of Burundi and other concerned stakeholders to support the inter-Burundian dialogue, as referred to in paragraph 5 ... |
5. 联合国当前在布隆迪的政治参与乃旨在和平解决该国目前的政治危机。只要派遣联合国警察就有助于这项努力。因此，派遣联合国警察的目的是帮助创造有利于政治对话的环境，避免安全局势进一步恶化并减少侵犯人权行为的发生。 | 5. The existing United Nations political engagement in Burundi aims at peacefully resolving the current political crisis in the country. Any United Nations police contribution would be in support of that effort. The objective of a United Nations police contribution would therefore be to help to create an environment co... |
6. 派遣联合国警察将是联合国政治战略的组成部分，可对今后联合国在布隆迪派驻人员的类型，即对我 2015 年 12 月 1 日的信中所概述的方案产生多种影响。 | 6. A United Nations police contribution would be an integral part of the United Nations political strategy and could have implications for the type of future United Nations presence in Burundi, the options therefor I outlined in my letter of 1 December 2015. |
背景 | Context |
7. 可信和包容的对话进程仍是和平解决布隆迪当前危机的唯一途径。但在发起这一进程方面迄今并未取得实际进展。因此，该国政治局势仍陷于僵局。在这方面，我欢迎东部非洲共同体任命坦桑尼亚共和国前总统本杰明·姆卡帕担任调解人，支持东部非洲共同体在乌干达总统约韦里·穆塞韦尼领导下开展调解工作，这一事态发展令人鼓舞。我还注意到，第 2279(2016)号决议第 7 段要求联合国通过我的特别顾问的斡旋，支持决议第 5 段所述布隆迪人对话，并在这方面与东部非洲共同体主导的、非洲联盟认可的协调人和秘书长协助人以及非洲联盟高级别代表团进行协调与合作，为协调工作提供技术和实务支持。 | 7. A credible and inclusive dialogue process remains the only way to peacefully resolve the current crisis in Burundi. So far, however, there has been no tangible progress in launching such a process. The political situation in the country therefore remains at an impasse. In this regard, I have welcomed as an encouragi... |
8. 自 2015 年初爆发政治危机以来，有关安全部队包括布隆迪国家警察、军事和情报部门、远望者民兵团体和不明身份武装运动成员严重侵犯人权行为的报告屡见不鲜。布隆迪的安全局势仍不稳定，令人震惊。虽然公共场所手榴弹袭击事件的次数 2 月底最多，但针对军事和警务人员的攻击包括暗杀和绑架事件也有增加。武装团体的零星攻击仍不断发生。 | 8. Since the onset of the political crisis early in 2015, there have been numerous reports of serious human rights violations by the security forces, including the National Police of Burundi, the military and intelligence services, members of the Imbonerakure youth group and unidentified armed movements. The security s... |
9. 虽然过去两个月来发生的法外处决次数有所下降，但有报告显示强迫失踪、任意逮捕和非法拘留以及虐待和酷刑情况呈上升趋势。安全局势急剧恶化仍是一个长期风险，给人权状况、部族间团结和区域稳定带来严重影响。被举报的侵犯和践踏人权行为，包括在安全和警戒搜查行动期间和扰乱公共秩序事件之后发生的侵犯和践踏人权行为，日趋削弱民众对国家警察维护法治作用的信任，一些人因此指控维持治安行动不断政治化。 | 9. While extrajudicial killings have declined in the past two months, reports indicate a rising trend in enforced disappearances, arbitrary arrests, illegal detention and ill-treatment and torture. A sharp deterioration in the security situation, with serious implications for the human rights situation, intercommunal c... |
10. 2004 年通过几个安全机构的合并以及前布隆迪武装部队和其他武装团体成员的整编成立了警察部队，其现役人数已从 2 000 人扩大至 18 000 人。由于部队规模庞大、大量前战斗人员的整编尚未完成以及部队的组织和行动能力有限，建立文职监督制度的工作举步维艰。内部问责机制十分薄弱，妨碍查实和制裁不当行为，助长了有罪不罚的行为模式。 | 10. Established in 2004 by the merger of several security institutions and the integration of former members of the Burundian armed forces and other armed groups, the police force expanded from 2,000 to 18,000 service personnel. The large size of the force, the incomplete integration of a large number of former combata... |
与布隆迪政府的协商 | Consultations with the Government of Burundi |
11. 我的特别顾问就派遣联合国警察事宜与布隆迪政府进行了广泛协商。布隆迪政府除了与我的特别顾问协商外，还通过两份来文表达了政府的观点：即 2016年4月7日的普通照会(见附文一)和2016年4月13日布隆迪常驻代表给我的信(见S/2016/344，附件)。在 4 月 7 日的信中，政府对任何“武装国际存在”表示保留，并补充说，“布隆迪政府和人民不会同意任何大规模联合国武装警察的存在。”4月 13 日的信指出，政府愿意接受大约 20 个非武装的警务专家在布隆迪领土上向布隆迪国家警察提供支持，并欢迎联合国以后勤形式提供的支助，特别是在 13个特定地区的能力建设。 | 11. My Special Adviser has held extensive consultations with the Government of Burundi on options for a United Nations police contribution. In addition to the consultations with my Special Adviser, the Government has made its views known in two written communications: a letter dated 7 April 2016 (see enclosure I) and a... |
与非洲联盟的协调 | Coordination with the African Union |
12. 根据安全理事会的请求并响应秘书处 4 月 6 日的普通照会，非洲联盟委员会在 2016 年 4 月 11 日的普通照会中强调，“非洲联盟人权观察员必须与在布隆迪的军事/安全专家和派遣的任何联合国警察开展密切协调与协作。在这一背景下，非洲联盟请秘书处考虑联合国采取何种办法协助非洲联盟完成人权观察员和军事/安全专家的部署，以便达到与布隆迪政府商定的人数并向他们提供支持。非盟还明确指出，这种支持可包括通信和其他设备、机动和合用同一地点，从而最大限度地利用现有资源，协助执行授权任务。这份普通照会见本函附文。 | 12. Pursuant to the request of the Security Council and in response to a note verbale dated 6 April from the Secretariat, the African Union Commission, in a note verbale dated 11 April 2016, emphasized the need for close coordination and collaboration between the African Union human rights observers and military/securi... |
部署待提供的联合国警察的战略目标和任务 | Strategic objective and tasks for the deployment of a United Nations police contribution |
13. 考虑到停滞不前的政治进程和持续存在的政治紧张局势、当前低强度冲突和不断变化的威胁环境、定向侵犯人权行为以及民众持续流离失所，派遣联合国警察应被视作有助于为减轻实地局势进一步恶化的风险所作预防性努力。部署工作将使联合国随时掌握情况的能力得到加强；对安全局势的分析得以深入并促进对人权的尊重，还将为持续应急规划以及今后对联合国布隆迪战略的任何审查提供资讯。安全理事会也会得到及时报告，获得包括潜在冲突来源和暴行犯罪风险在内的各种信息，从而使安理会能够以阻遏和预防的形式应对布隆迪局势的任何进一步恶化。但是，警察部署不能取代旨在发起可信和包容性对话进程的政治参与。 | 13. Considering the stalled political process and persisting political tensions, the prevailing low-intensity conflict and the fluid threat environment, targeted human rights violations and continued displacement of the population, a United Nations police contribution should be viewed as contributing to a preventive ef... |
14. 必须知悉派遣联合国警察可以取得和无法取得的成绩。如不处理基本政治问题，确定如何在该国包括在安全领域开展治理，就无法克服国家警察的主要缺点。正因为如此，以往警务改革努力的影响都十分有限。最近，向警察提供技术援助的国际社会努力也被主要捐助方叫停。为了解决政治和法治问题，必须加强法律框架和独立的司法机构，改善文职民主监督机制，确保追究严重侵犯人权行为，灌输尊重人权和法治的体制文化，这一切都必须在国际社会更广泛支持加强司法和安全部门改革的框架内得到进一步考虑。将国家警察建成一个公正、专业、可靠并兼备可持续系统和进程的警务部门是一项长期使命，需要政府抱定强有力的政治意愿，还需要在更广泛的法治框架内履行使命。 | 14. It is important to acknowledge what can and cannot be achieved with any United Nations police contribution. The key shortcomings of the national police cannot be resolved without addressing the underlying political problems, which relate to how governance is exercised in the country, including in the area of securi... |
15. 派遣警察人员的部署工作将在非洲联盟的部署基础上展开，并将循序渐进，扩缩自如。这一部署应成为国际社会应对布隆迪危机的总体对策包括应急规划的一部分，部署办法要定期更新。局势一旦出现严重恶化或重大改善，就需要进行战略调整和改变国际对策，包括联合国的实地存在。不过，部署不足以化解危机。如果没有更大的授权允许使用一切必要手段，则部署行动对公共秩序管理的影响就会非常有限，也不能提供适当的保护平民办法。 | 15. The deployment of a police contribution would build on the African Union deployment and would be progressive and scalable in scope. The deployment should form part of an overall response of the international community to address the crisis in Burundi, which includes contingency planning, the modalities of which are... |
16. 政府以及其他国家利益攸关方的充分合作，包括必要时允许前往全国各地、进入拘留所和法院等相关设施以及接触相关利益攸关方，是成功派遣警察的先决条件。 | 16. Full cooperation of the Government, as well as other national stakeholders, would be a precondition for the success of any police contribution, including with regard to access throughout the country to relevant facilities, such as detention centres and courts, and access to relevant stakeholders, as required. |
17. 另外，尽管政府有责任保障联合国人员和设施的安全和安保，但为了部署联合国警察人员，需要更新安保风险评估，在此基础上确定人员和设施的安全和安保需求，根据联合国以往的经验，这可能包括增派联合国军警人员，但不妨害政府履行这一责任。 | 17. The deployment of United Nations police personnel would require an updated security risk assessment, on the basis of which the requirements for ensuring the safety and security of the personnel and installations would be determined. On the basis of prior United Nations experience, this could potentially include the... |
18. 根据联合国人权尽职政策，为了向国家军警部门提供联合国支持，需要对提供或不提供这种支持所涉及的风险，尤其是执法机构实施严重违反人权法行为的风险进行评估。在目前情况下，还要认真考虑因联合国警务人员与国家当局共同工作的认知联想所带来的名誉风险。 | 18. In line with the United Nations human rights due diligence policy, United Nations support to uniformed State authorities would require an assessment of the risks involved in providing or not providing such support, in particular, the risk of the law enforcement agencies committing grave violations of human rights l... |
任务 | Tasks |
19. 按照第 2279(2016)号决议为待提供的联合国警察规定的职能，联合国警察人员要履行以下三类相互关联的活动。在履行这些任务时，联合国警察人员要与现有的联合国人员特别是联合国人权事务高级专员办事处(人权高专办)人员以及非洲联盟人员密切合作。这三类活动是： | 19. In accordance with the functions identified in resolution 2279 (2016) for a United Nations police contribution, the three interrelated lines of activity to be performed by United Nations police personnel are set out below. In performing the tasks, United Nations police personnel would work in close cooperation with... |
(a) 监测安全局势： | (a) Monitor the security situation: |
㈠ 监测警察和其他执法机构； | (i) Monitor police and other law enforcement agencies; |
㈡ 与联合国人权监测员密切配合，监测安全事件和侵犯人权行为； | (ii) Monitor security incidents and human rights violations in close cooperation with United Nations human rights monitors; |
㈢ 在其行动区收集、核实和分析信息； | (iii) Collect, verify and analyse information in its areas of operation; |
㈣ 形成可靠的态势感知； | (iv) Generate reliable situational awareness; |
㈤ 报告所派遣警察人员行动自由受到的任何限制或在履行其任务方面的其他障碍； | (v) Report on any restrictions of the police contribution’s freedom of movement or other impediments to the fulfilment of its mandate; |
(b) 促进尊重人权： | (b) Promote respect for human rights: |
㈠ 与人权高专办协调，参加收集关于侵犯人权行为的信息； | (i) Participate in collecting information on human rights violations, in coordination with OHCHR; |
㈡ 支持人权高专办调查安全事件和侵犯人权行为； | (ii) Support OHCHR in investigating security incidents and human rights violations; |
㈢ 就人权尽职政策第 9 段许可的活动向布隆迪国家警察提供辅导和咨询，并与民间社会，特别是弱势群体成员接触互动； | (iii) Mentor and advise the National Police of Burundi in accordance with the activities permitted under paragraph 9 of the United Nations human rights due diligence policy and engage with civil society, particularly members of vulnerable groups; |
(c) 推进法治： | (c) Advance the rule of law: |
㈠ 调查安全事件和侵犯人权行为(包括提供法证、DNA 和火器方面专门的调查专长)； | (i) Investigate security incidents and human rights violations (including the provision of specialized investigative expertise on forensics, DNA and firearms); |
调查专长)；㈡ 就人权尽职政策第 9 段许可的活动对布隆迪国家警察进行培训； | (ii) Training of the National Police of Burundi in accordance with activities permitted under paragraph 9 of the United Nations human rights due diligence policy; |
㈢ 监测起诉和法庭程序； | (iii) Monitor prosecutions and court proceedings; |
㈣ 监测拘留设施、条件和拘留的合法性及被拘留者的待遇。 | (iv) Monitor detention facilities, conditions and legality of detention and treatment of detainees. |
20. 这些职能可在多大程度上得以执行将取决于所选方案的规模和范围、部署人员的素质和国家当局的支持。推动法治或监测拘留设施和法院诉讼程序将需要高技能的专业人员。 | 20. The extent to which these functions can be executed will be dictated by the size and scope of the option selected, the quality of the personnel deployed and the support of the national authorities. Advancing the rule of law or monitoring detention facilities and court proceedings will require highly skilled special... |
21. 按第 2279(2016)号决议的规定，任何联合国警务顾问、培训或其他能力建设职能都将在进行上文第 18 段所述风险评估后，纳入旨在促进布隆迪国家警察遵守人权法的活动，以确保遵守联合国人权尽职政策，例如： | 21. In accordance with resolution 2279 (2016), any United Nations police advisory, training or other capacity-building functions would include activities that are intended to promote the compliance of the National Police of Burundi with human rights law, subject to a risk assessment, as noted in paragraph 18 above, to ... |
(a) 对布隆迪国家警察进行国际人道主义法和人权法方面的培训或提醒； | (a) Training or sensitization of the personnel of the National Police of Burundi on international humanitarian and human rights law; |
(b) 对布隆迪的法律、规章和布隆迪国家警察的政策进行咨询和审查，以加强其执行和遵守人权法律和标准的水平，促进民主治理； | (b) Advice on and review of Burundi’s legislation and codes and policies of the National Police of Burundi to strengthen its implementation of and compliance with human rights laws and standards and to foster democratic governance; |
(c) 提供能力支助，旨在为布隆迪国家警察建立有效的内部和外部问责机制，以打击严重侵犯人权行为有罪不罚的现象；和(或)， | (c) Capacity support to establish effective internal and external accountability mechanisms of the National Police of Burundi to combat impunity for serious human rights abuses; |
(d) 与布隆迪国家警察接触互动，以促进遵守人道主义法、人权法和难民法的水平或就人道主义援助准入问题进行谈判并开展救济行动。 | (d) Engagement with the National Police of Burundi to promote compliance with humanitarian, human rights and refugee law or negotiate humanitarian access and carry out relief operations. |
向联合国派驻机构派遣警察人员备选方案 | Options for a police contribution to the United Nations presence |
22. 下文所述备选方案向安全理事会提供了关于派遣联合国警察人员的各种可能性，而各方案在影响、规模、关注重点以及本组织声誉风险程度方面差别很大。这些备选方案也可被视为根据实地不断变化的局势而采取的分阶段部署办法。在须由安全理事会就下文任一方案作出决定的前提下，还将需要就其确切规模、组成和报告安排，以及严格的风险评估，包括安全风险评估，进行进一步详细规划。为了提高下列备选方案的效力，安理会应要求(而布隆迪政府也应提供)安全保障及准入，包括让警察和文职监测员能够不受任何阻碍地进入拘留所，接触到被拘留者个人。 | 22. The options set out below present the Security Council with a range of possibilities for a United Nations police contribution, which differ considerably in their impact, scale, focus and degree of reputational risk to the Organization. The options could also be considered as a phased deployment, depending on the ev... |
备选方案 1：派驻联合国警察保护和监测人员 | Option 1: United Nations police protection and monitoring presence |
23. 第一个备选方案是部署一警察部队，除执行上文第 19 段所述三项主要任务外，还将提供可见的巡逻，包括在热点地区的巡逻，为覆盖一个更大的监测和调查范围而创造条件，并定期向安全理事会报告情况。所派遣的警察人员将包括建制警察部队。然而，在目前的背景下按照联合国人权尽职政策，也许无法由建制警察部队通过支助国家对应机构而对公共秩序管理作出任何有意义的贡献。因此，若要使部队能够单方面采取行动保护平民，则需要有维持治安任务的执行授权，直至能够按照人权尽职政策向国家执法机构提供行动支助。此外，建制警察部队也不具备应对军事类型威胁，包括武装团体的威胁的手段及条件。 | 23. The first option would be a police deployment, which, in addition to the three key tasks set out in paragraph 19 above, would provide visible patrolling, including in hotspot areas, and an expanded monitoring and investigation range and produce regular reports to the Security Council. The police contribution would ... |
24. 在有待更详细的评估的前提下，按这一备选方案的设想，将部署约 3 000 名警务人员，包括建制警察部队的人员。且应如上文第 20 段所述，通过设立一个小规模负责法治的部分，来增援所部署的警察人员。部署的警察人员将与非洲联盟和现有的联合国驻布隆迪机构平行部署和运作，这需要密切协调，以确保一致性。这一部署是唯一可在威胁增多的情况下向居民提供某种程度人身保护的备选方案。 | 24. Subject to a more detailed assessment, this option envisages the deployment of approximately 3,000 police personnel, including those in formed police units. It should be reinforced by a small rule-of-law element, as indicated in paragraph 20 above. The presence would deploy and operate in parallel with the African ... |
25. 要派驻如此规模的联合国警察力量，则将要求大量资源、较长的准备时间，以便征召数目如此巨大的警务人员，尤其是具有适当语言技能和为履行上文第 19段所述职能而必需的专长的警察，而根据以往经验，这须经过数月或更长时间才能组建这样一支派遣部队。还需要安全理事会予以适当任务授权、布隆迪政府同意部署以及政府继续合作确保给予必要的准入。 | 25. A United Nations police presence of this size would require considerable resources and lead time to generate such a high number of police personnel, particularly officers with the appropriate language skills and the specialized expertise needed to execute the functions outlined in paragraph 19 above. On the basis o... |
备选方案 2：派驻联合国警察监测人员 | Option 2: United Nations police monitoring presence |
26. 第二个备选方案是部署单个联合国警察人员，与人权高专办在布隆迪派驻的人员一起工作。他们将履行上文第 19 段所述三方面相互关联的活动。联合国警务人员将部署在布琼布拉和 4 个现有联合国区域办事处(即布琼布拉、基特加、恩戈齐和马坎巴)，覆盖布隆迪所有 18 个省，以确保有足够的态势感知和预警能力。 | 26. The second option would be the deployment of United Nations individual police officers, together with the OHCHR presence in Burundi. They would perform the three interrelated lines of activity set out in paragraph 19. The United Nations police personnel would be deployed in Bujumbura and four existing United Nation... |
27. 为了最大限度地提高联合国促进尊重人权的能力，在部署警察人员的同时，应增加人权高专办在实地派驻的力量，以加大监测、报告和跟踪侵犯人权行为的力度，还要派遣上文第 20 段所述的法治专家。与其他实体特别是非洲联盟协调并支持它们的工作，对充分尊重履行其各自的任务将是至关重要的。 | 27. In order to maximize the United Nations capacity to promote respect for human rights, the police deployment should be combined with an increased OHCHR presence on the ground to step up efforts to monitor, report and follow up on human rights violations, as well as rule-of-law specialists, as indicated in paragraph ... |
28. 在这一备选方案下，还有一种可能性是，派遣联合国警察人员与非洲联盟人权观察员和军事专家(目前的核定人数是各 100 人)合用同一地点，以利用现有能力和相对优势。为此，将需要设立一个小规模的警察和文职能力，负责处理、收集和分析信息，还需要设立一个小规模的规划能力，负责在实地局势恶化或随政治进程进展而可能扩大联合国参与的情况下，制定应急计划。 | 28. A further possibility under this option is for the United Nations police contribution to be co-located with the African Union human rights observers and military experts (current approved strength is 100 each) to leverage existing capacities and comparative advantages. The establishment of a small police and civili... |
29. 在有待更详细的评估的前提下，按这一备选方案的设想，将部署 228 名联合国警务人员，与人权高专办驻布隆迪办事处一起工作，并可能与非洲联盟部署的人员合用同一地点。这一备选方案可逐步扩大，以根据情况需要而部署更多警务人员。 | 29. Subject to a more detailed assessment, this option envisages the deployment of 228 United Nations police personnel working together with the OHCHR office in Burundi and possibly co-located with the African Union deployment. This option could expand progressively to include the deployment of more police personnel as... |
30. 这一备选方案较可能对联合国的态势感知能力产生积极影响，并提供早期预警能力，以使国家、区域和国际各级的利益攸关方能够应对新出现的安全和人权关切。这一方案不会向居民提供任何人身保护。该方案给联合国带来相当大的风险，包括提高受威胁的程度，也无法满足公众可能对保护抱有的期望。 | 30. This option is likely to have a positive impact on the situational awareness of the United Nations and provide early warning capacity to enable national, regional and international stakeholders to address emerging security and human rights concerns. It would not provide any physical protection to the population. It... |
备选方案 3：派驻联合国警察评估人员 | Option 3: United Nations police assessment presence |
31. 第三个备选方案的部署规模较小，重点是与布隆迪国家警察进行战略参与和评估。这一派驻机构将评估布隆迪国家警察在行动和体制方面的限制、监督工作的薄弱环节、以及问责问题，并确定未来联合国警察参与的战略。它将对国家警察的缺陷进行详细诊断，并分析入境点，就进一步派遣联合国警察人员的可能性提出有针对性的建议。在此过程中，这一警察派驻机构将利用其在国家警察和其他相关政府实体中的联系人帮助实现在国家当局，特别是国家警察尊重人权和法治方面具体且可衡量的改进。根据这些建议，可设想在未来进行可扩缩的分阶段部署，但前提是须得到安全理事会适当的任务授权以及政府的同意。这一方案最初将部署三个月，此后，我将向安理会汇报情况，或若因安全局势恶化而需要，则提前... | 31. The third option is a smaller deployment with a focus on strategic engagement with and assessment of the National Police of Burundi. The presence would assess the operational and institutional limitations of the national police, oversight weaknesses and issues of accountability, and would identify strategies for fu... |
32. 该方案足迹轻，具有 20 至 50 名警务人员，仅需要在首都以外地区定期派驻有限的人员，但只能提供有限的力量，用于履行第 2279(2016)号决议概述的三个方面活动。然而，这一备选方案的优点是具有灵活性且部署迅速。部署专注于与布隆迪警察接触互动的联合国警务人员，会被视为不够全面，对其带来的声誉风险，需要加以评估，并确定减轻影响措施。这一备选方案也不能满足民众对提供保护的期望。 | 32. With a light footprint of between 20 and 50 police personnel, this option would entail only a limited and periodic presence outside the capital region and could only provide a limited capacity to fulfil the three lines of activity outlined in resolution 2279 (2016). However, it has the advantage of flexibility and ... |
对支助工作的影响 | Support implications |
33. 联合国在布隆迪的支助安排，其目前的构成是为了支持特别顾问办公室设于布琼布拉的一个规模较小的派驻机构。按照拟议的各项备选方案，这一支助平台将需要得到加强，而且按照其中两个备选方案，还需大大加强。 | 33. United Nations support arrangements in Burundi are currently configured to support a small Bujumbura-based presence of the Office of the Special Adviser. Under the options proposed, this support platform would need to be strengthened and, for two of the options, significantly so. |
34. 作为一个内陆国家，且其因而有着漫长的供应线，布隆迪在后勤方面造成了挑战。至少，且根据当前的安全局势，前两个备选方案将要求在全国各地确定并准备多个新的地点，以容纳扩大的派驻机构，包括提供办公室、运输、通信、信息技术和医疗后送能力。 | 34. As a landlocked country with correspondingly long supply lines, Burundi presents a logistical challenge. At a minimum, and depending on the prevailing security situation, the first two options would require the identification and preparation of multiple new locations around the country to accommodate an expanded pr... |
35. 若授权部署建制警察部队，有关需求的范围将大幅度扩大，以包含建制部队标配的各种支助服务和能力，包括一个营地建造和维护方案、运送口粮、燃料、战略空运、车辆维修和对特遣队所属装备和人员进行偿还等。若在多个地点为按备选方案 1 提议扩大的建制警察派驻机构建设基础设施，则将意味着需要漫长的准备时间，且需要结合警察的征召时间表分阶段进行。此外，设于布琼布拉的集中能力需要得到加强，包括医疗设施、仓储和后勤基地、合同监督和行政职能。乌干达恩德培区域服务中心将继续提供后台办公室支助，并根据拟议的备选方案对有关能力加以调整。 | 35. Should formed police units be authorized, the scope of requirements would expand significantly to include the full range of support services and capacities normally associated with them, including a camp construction and maintenance programme, the delivery of rations and fuel, strategic airlifts, vehicle maintenanc... |
36. 为利用非洲联盟、人权高专办和可能派遣的联合国警察的能力和比较优势，我审议了非洲联盟的请求，认为应通过提供可预测和可持续的行动支助，加强非洲联盟的努力，这样做对于我们的集体努力取得更大成功十分重要。安全理事会可以考虑授权联合国向非洲联盟提供一揽子定向后勤支助并设立一个联合国警察人员派驻机构。秘书处可以根据这一请求编制提案，建议采取何种最适当的手段，根据联合国的标准和做法并在严格遵守联合国人权尽职政策的情况下支持这些独特但相关的派驻机构。 | 36. In leveraging the capacities and comparative advantages of the African Union, OHCHR and a possible United Nations police contribution, I have considered the request of the African Union and believe that it is important to the broader success of our collective efforts that the efforts of the African Union should be ... |
37. 在安全理事会审议上述派遣联合国警察人员备选方案的同时，我将着手按安理会第 2279(2016)号决议第 10 段的要求，加强我的特别顾问团队，以便与布隆迪政府和其他相关利益攸关方合作，为该决议第 5 段所述布隆迪人之间的对话以及在安全和法治领域提供支助。 | 37. As the Security Council considers the above options for a United Nations police contribution, I will proceed with strengthening the team of my Special Adviser, as requested by the Council in paragraph 10 of resolution 2279 (2016), i n order to work with the Government of Burundi and other concerned stakeholders to ... |
附文一 | Enclosure I |
[原件：法文] | [Original: French] |
2016 年 4 月 7 日布隆迪常驻联合国代表给安全理事会主席的信 | Letter dated 7 April 2016 from the Permanent Representative of Burundi addressed to the Secretary-General |
谨告知布隆迪政府愿再次表示愿意与驻布隆迪的联合国国家工作队和你的特别顾问贾迈勒·比诺马尔先生领导的充满活力的新团队充分合作，该团队的一些成员已在布琼布拉开展实地工作。我想借此理想机会表示适当注意到，安全理事会 2016 年 4 月 1 日一致通过的第 2279(2016)号决议第 10 段提出部署待提供的联合国警察，其中明确提到在制定方案时与布隆迪政府协商。 | I have the honour to inform you that the Government of Burundi wishes to reiterate its willingness to cooperate fully with the United Nations country team in Burundi and with the new and dynamic team led by your Special Adviser, Mr. Jamal Benomar, some members of which are already working on the ground in Bujumbura. I ... |
在这方面，布隆迪政府愿意听从你的调遣，通过你的特别顾问讨论和商定联合国派驻布隆迪人员的性质、规模和责任。在这方面，正如我在 2016 年 4 月 1 日通过第 2279(2016)号决议时提醒安全理事会的那样，而且最重要的是，现在愿再次回顾，布隆迪政府强调，派驻无武装国际人员的方案也是最近在亚的斯亚贝巴举行的非洲联盟国家元首和政府首脑会议、2016 年 3 月 25 日和 26 日访问布琼布拉的五国总统非洲联盟高级别代表团、2016 年 2 月 10 日在罗安达举行的大湖区国际会议国防部长委员会会议以及布隆迪政府通过代表选民的国家议会提出的建议之一。 | In that connection, the Government of Burundi remains at your disposal, through your Special Adviser, to discuss and agree on the nature, size and duties of this United Nations police presence in Burundi. In this regard, as I reminded the Security Council on 1 April 2016 when resolution 2279 (2016) was adopted, and, mo... |
这些国家、区域和非洲大陆利益攸关方都表示反对在布隆迪派驻大批国际武装人员，并倾向于部署非武装专家和人权观察员。只是这个非武装方案才是我们打算本着开放精神，首先是在严格恪守布隆迪国家主权的神圣原则基础上与你的团队更详尽讨论的，该方案也是非洲联盟、该区域和布隆迪政府的选择。布隆迪赞成庄严载入《联合国宪章》的主权原则。如果联合国部署大批武装警察人员，就无法得到布隆迪政府和人民的同意；这就是我们的红线，皮埃尔·恩库伦齐扎阁下 2016 年 4 月 23 日在布琼布拉举行会谈期间也重申了这一点。 | These national, regional and continental stakeholders have all expressed their opposition to a large, international armed presence in Burundi and their preference for the deployment of unarmed experts and human rights observers. It is solely this unarmed option, which is the choice of the African Union, the region and ... |
应该记住，布隆迪自 1962 年在联合国的宝贵支持下实现独立以来一直与本组织密切合作。布隆迪政府当然会继续与联合国及其在布琼布拉的团队进行建设性合作。我们必须继续本着开放精神开展更紧密的合作，巩固我国和本区域的和平与稳定，以便为我国争取更美好和更稳定的未来。 | It should be remembered that Burundi has worked closely with the United Nations since achieving independence in 1962 with the invaluable support of the Organization. The Government of Burundi will of course continue to cooperate constructively with the United Nations and its teams in Bujumbura. We must continue to work... |
顺致最高敬意。 | Accept, Sir, the assurances of my highest consideration. |
埃尔伯·圣希罗(签名) | (Signed) Albert Shingiro |
附文二 | Enclosure II |
2016 年 4 月 11 日非洲联盟委员会的普通照会 | Note verbale dated 11 April 2016 from the African |
2016 年 4 月 11 日非洲联盟委员会的普通照会 | UnionCommission |
非洲联盟委员会向联合国亚的斯亚贝巴办事处致意，并谨告知收到 2016 年 4月 6 日关于布隆迪局势的普通照会。 | The Commission of the African Union presents its compliments to the United Nations Office to the African Union in Addis Ababa, and has the honour to acknowledge receipt of the note verbale of 6 April 2016 regarding the situation in Burundi. |
委员会欢迎安全理事会 2016 年 4 月 1 日通过第 2279(2016)号决议。该决议借鉴了安全理事会先前就布隆迪局势发表的意见，包括 2015 年 11 月 12 日第2248(2015)号决议，是努力推动谋求早日持久解决布隆迪危机一个新的重大步骤。 | The Commission wishes to welcome the adoption by the Security Council of resolution 2279 (2016) on 1 April 2016. Building on the earlier pronouncements of the Security Council on the situation in Burundi, including in Council resolution 2248 (2015) of 12 November 2015, this resolution marks a new and significant step i... |
委员会注意到第 2279(2016)号决议第 5 段的规定，敦促布隆迪政府和布隆迪国内外所有谋求和平解决的利益攸关方与东非共同体主导和非盟认可的调解人及其协助人全面合作，以便迅速商定一个时间表和参与方名单，用于开展真正包容各方的布隆迪人对话，并重点指出非盟和平与安全理事会关于在布隆迪境外由协调人决定的地点举行这一对话的决定很重要。这一规定加强了和平与安全理事会一再发出的呼吁，即早日举行真正具有包容性和真正的布隆迪人对话，以克服该国面临的严重挑战。维护 2000 年 8 月《布隆迪问题阿鲁沙和平与和解协定》所取得的成果，并为布隆迪的持久和平、安全和稳定奠定基础。 | The Commission notes the provisions of paragraph 5 of resolution 2279 (2016), in which the Security Council urged the Government of Burundi and all stakeholders committed to a peaceful solution, both those who are in Burundi and those outside the country, to extend full cooperation to the East African Community - led a... |
委员会谨回顾，根据非洲联盟和平与安全理事会的有关公报，非洲联盟向布隆迪部署了人权观察员和军事专家。他们各自负责以下工作：(a) 监测实地人权状况，报告侵犯人权和违反国际人道主义法行为，并开展预防和解决地方冲突活动； (b) 核查解除民兵和其他武装团体武装的进程。部署工作作为全面战略的一部分开展，目的是应对和平与安全理事会所述布隆迪当前的挑战，包括迫切需要开展对话和充分支持东非共同体主导的调解。 | The Commission wishes to recall that, in pursuance of the relevant communiqués of the African Union Peace and Security Council, the African Union has deployed to Burundi human rights observers and military experts. They are mandated to, respectively: (a) monitor the human rights situation on the ground, report violatio... |
委员会迄今已部署 32 名人权观察员和 15 名军事专家。目前正在采取步骤增派 15 名人权观察员和 19 名军事/安全专家(包括 6 名警务专家)。目标是尽早达到非洲联盟 2016 年 2 月 25 日和 26 日赴布琼布拉代表团访问期间与布隆迪政府商定的总人数，即 200 人(100 名人权观察员和 100 名军事/安全专家)。委员会满意地注意到安全理事会多次表示支持部署非洲联盟人权观察员和军事/安全专家。 | To date, the Commission has deployed 32 human rights observers and 15 military experts. Steps are under way to deploy an additional 15 human rights observers and 19 military/security experts (including 6 police officers). The objective is to reach as early as possible a total strength of 200 personnel (100 human rights... |
委员会注意到，安全理事会第 2279(2016)号决议请秘书长与布隆迪政府协商并与非洲联盟协调，提出部署待提供的联合国警察人员以增强联合国能力的方案，以便根据联合国人权尽职政策监测安全局势，促进对人权的尊重和推动法治。委员会欢迎安理会要求在提出部署待提供的联合国警察人员方案时与非洲联盟进行协调。委员会强调指出，第 2279(2016)号决议概述的目标与非洲联盟人权观察员和军事/安全专家目前谋求的目标相似。 | The Commission notes that, in paragraph 10 of its resolution 2279 (2016), the Security Council requested the Secretary-General, in consultation with the Government of Burundi and in coordination with the African Union, to present options for the deployment of a United Nations police contribution to increase the United ... |
在这方面，作为非洲联盟和联合国在和平与安全领域伙伴关系的一部分，并根据《宪章》第八章的规定，委员会愿强调非洲联盟人权观察员和军事/安全专家必须与联合国在布隆迪派驻的任何人员密切协调与合作。两组织可以在其先前开展的和平与安全领域有关合作和联合工作基础上找出和商定具体办法。 | In this respect, and as part of the African Union-United Nations partnership in the area of peace and security and consistent with the provisions of Chapter VIII of the Charter of the United Nations, the Commission wishes to underline the need for close coordination and collaboration between the African Union human rig... |
在此背景下，委员会希望秘书处能在即将提交安全理事会的备选方案框架内，审议联合国协助欧洲联盟完成部署人权观察员和军事/安全专家的办法，以便达到与布隆迪政府商定的人数。应该强调的是，安理会第 2279(2016)号决议要求充分和迅速部署非洲联盟军事/安全专家和人权观察员。 | Against this background, the Commission could be grateful if, within the framework of the options to be submitted to the Security Council, the Secretariat could consider modalities through which the United Nations might assist the African Union in completing the deployment of its human rights observers and military/sec... |
委员会还希望联合国可以同样考虑向非洲联盟人权观察员和军事/安全专家提供实地支持。这可以包括通信和其他设备、机动和合用地点，从而最大限度地利用现有资源，协助执行任务。另外，委员会还准备考虑采用联合国的其他办法加强报告等方面的协作与合作。 | The Commission would also be grateful if the United Nations could, similarly, give consideration to the provision of support on the ground to the African Union human rights observers and military/security experts. This could include communications and other equipment, mobility and co-location, which would maximize the ... |
委员会强烈认为，上文广泛述及的密切合作与协调将确保加强国际存在；使更有效支持布隆迪利益攸关方谋求化解该国面临的挑战成为可能，并推动营造有利的条件，按照非洲联盟和联合国的要求，在东非共同体主持下早日举行包容性对话。总之，拟议协作和协调与和平行动问题高级别独立小组的报告结论(见A/70/95-S/2015/446)相一致，其中要求联合国和非洲联盟建立更深入和更具所有协作性的伙伴关系。 | The Commission strongly believes that close collaboration and coordination, as broadly outlined above, will ensure increased international presence; make it possible to more effectively support the Burundian stakeholders in the search for a solution to the challenges confronting their country; and contribute to the cre... |
(C) 010520 080520 | GE.20-05863(E) |
本报告根据人权理事会第 41/9 号决议提交，理事会在该决议中请联合国人权事务高级专员办事处编写一份报告，说明各国在将人权纳入打击腐败的国家战略和政策，包括针对私营部门等非国家行为方的这类战略和政策方面所面临的挑战和采用的最佳做法，并将报告提交理事会第四十四届会议。联 合 国 A/HRC/44/27大 会 Distr.: General21 April 2020ChineseOriginal: English一. 导言1. 人权理事会在其第 41/9 号决议中请联合国人权事务高级专员办事处(人权高专办)编写一份报告，说明各国在将人权纳入打击腐败的国家战略和政策，包括针对私营部门等非国家行为方的这类战略和政策方面所面临的挑战和采用的最... | Annual report of the United Nations High Commissioner for Human Rights and reports of the Office of the High Commissioner and the Secretary-General Promotion and protection of all human rights, civil, political, economic, social and cultural rights, including the right to development Challenges faced and best practices... |
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