致韩国人权委员会的信（关于韩国的艾滋病立法）

韩国人权委员会反歧视部门

调查员

Lee Seong-Taek先生

尊敬的Lee先生：

人权观察组织（HRW）借此就韩国人权委员会即将召开的针对韩国E-2教育签证规定的会议特致此函。我们促请韩国人权委员会了解韩国E-2教育签证规定所包含的歧视并强烈主张撤消规定中所附带的进行艾滋病检查的要求。

人权观察组织创建于1978年，是独立的非政府组织，负责在八十多个国家监督人权的进展。人权观察组织自2001年以来一直在全球范围监督与艾滋病传播有关的违反人权的情况。人权观察组织肯定韩国人权委员会过去在健康和人权方面所作的工作和努力并且非常赞赏韩国人权委员会在"Heo"被遣返以及政府强迫其雇员公布乙肝状况等事件中所作的调查。人权观察组织期望此函将有助于引起韩国人权委员会对韩国的国际性的人权立法和韩国E-2教育签证规定所牵涉的公共健康等问题的重视。

南韩是世界上或者拒绝艾滋病感染者入境或者要求短期入境者须公布其艾滋病状况的14个国家之一。[1] 尽管国际性人权立法允许在公众健康遇到紧急情况时对一些权益予以限制，不过即使在顾及有效保障公众健康的诉求之下这些限制也必须降到最低限度。[2] 但是与艾滋病有关的入境，停留及居住的一些限制如韩国E-2教育签证的规定和一些与移民有关的立法，不仅没有必要甚至对公众健康有害无益。强迫进行艾滋病检查和遣返感染艾滋病的外国工作人员应当立即停止。联合国秘书长潘基文最近呼吁韩国政府官员解除针对感染艾滋病的外籍人员的入境限制。[3] 应当引导立法机构和政府将资源用于建立旨在平等地对本国公民和外籍人员进行防治，照顾和治疗等计划。

1．涉及公众健康和人权的与艾滋病有关的入境，停留和居住限制

国家限制艾滋病感染者入境，停留和居住明显地违反了国际人权立法关于禁止歧视和法律面前人人平等的规定。[4] 遵循人权普世宣言，[5] 公民和政治权利国际公约（ICCPR）保障每个人受到法律的平等保护，不因种族，肤色，性别，语言，宗教，政治的或其他的观点，民族出身或社会地位，贫富，出生或其他身份等而受到歧视。[6] 根据前联合国人权委员会的解释，此条款涵盖对艾滋病患者的歧视。[7] 每个国家在其境内和司法管辖范围内都须尊重个人所享有的这个权利，[8] 而无论他们来自哪一个国家。[9]公民和政治权利国际公约（ICCPR）的监督机构人权委员会曾经阐明"原则上，国家在决定何人可以进入其领土...在一定的情况下，外国人在与入境或居住有关的如非歧视，禁止非人道的待遇及尊重家庭生活等方面应当享有公民和政治权利国际公约的保护。" [10] 根据人权机构如欧洲人权法庭曾经作出的裁决，国家所实施的入境和居住法律和规定不得构成对特定群体的歧视。

[11] 针对艾滋病状况的入境，停留和居住的限制规定违反了人权的原则。联合国艾滋病规划署曾经裁决，前面所述的限制违反了难民不被遣返的人权原则，[12] 保护家庭的责任，儿童最大权益的保护，隐私权，自由结社的权利，获得信息的权利以及移民劳工的权利。 [13] 前面所述的限制还影响到个人寻求政治避难，工作，教育，最佳健康条件的获得，尊严及生命等。

根据国际人权法，为了避免被归结为歧视，实施任何会给某个特定群体如艾滋病感染者带来负面影响的差别待遇必须证明其合法的必要性及最低限度的负面作用（即最低限度的差别）。[14] 虽然保障公众健康是必要而且合法的，但是在入境，停留和居住的规定中将艾滋病感染者划分出来实际上并不能保障公众的健康，[15] 而且就以最低限度的负面影响保障公众健康这一目的来说，这样措施不但不够严谨并且过于强制。[16]

以保障公众健康为由而实施与艾滋病有关的入境，停留和居住限制长久以来即不被国际社会所接受。世界卫生组织于1987年第一次作出决定，对国际间的旅游者进行筛检并不是防治艾滋病传播的有效手段 [17] 并于1988年指出这种筛检的方法既不可行且浪费资源。[18] 联合国人权事务高级专员办公室和联合国艾滋病规划署明确地指出"任何仅仅出于对艾滋病的怀疑或基于艾滋病的状况，包括对国际旅行者进行的艾滋病筛检，而对[自由迁徙和选择居住处所的]权力所实施的限制都构成为歧视因而不能以保障公众健康为依据而合法化"，[19] 尽管艾滋病是可以传染的，但艾滋病毒不会经过偶然的接触而传播，[20] 在不曾实施与艾滋病有关的入境，停留和居住限制国家，没有任何报告显示由此而对公众健康带来的负面影响。[21]

确切地说，实施与艾滋病有关的入境，停留和居住限制会给公众健康带来负面的影响，理由如下。第一，[22] 由于让民众产生一种观念即须保护本国国民以防范外国国民的威胁，[23] 由于偏见地认为艾滋病感者会任意传播艾滋病，从而在名誉上进一步伤害和歧视了受到艾滋病感染的外籍移民。[24] 在实施与艾滋病有关的入境，停留和居住限制下，人们很难再公开地谈及艾滋病问题，因而减少了预防，检测和治疗的机会，[25] 从而更进一步使艾滋病感染者受到忽略。[26] 专业人员将艾滋病感染者筛拣出来和强迫性的艾滋病检查所作的批评是，此举为公众制造了错误的安全观念即只有外籍移民才具有艾滋病的危险，[27] 只要在边界上加以控制就可以阻止艾滋病的传播。[28]

2. 韩国E-2签证规定中与艾滋病有关的限制

2007年11月以来，韩国修订了的E-2教育签证规定申请在韩国延期居住时须递交包括艾滋病检查的健康证明，外国人申请新的E-2教育签证时须递交包括艾滋病检查的健康证明。[29] 强迫进行艾滋病检查与遣返艾滋病感染者密切相关。韩国移民管理法规定移民官员有权拒绝传染性疾病患者入境和将他们遣返。[30] 韩国疾病防治中心2008年的一份报告显示，647名患有艾滋病的外国人中有521人"被迫离开韩国。" [31]

作为入境，停留和居住的先决条件，强迫E-2签证申请人以及在韩国的外国人进行艾滋病检查是不被国际法所接受的。如前所述，根据国际人权法，实施任何会给某个特定群体如艾滋病感染者带来负面影响的差别待遇必须证明其合法的必要性及最低限度的负面作用（即最低限度的差别）。[32] 韩国的与艾滋病有关的入境，停留和居住规定不仅具有歧视性而且实际上并不能够保障公众健康，而其是不合法的。

Benjamin Wagner先生就E-2签证的规定向韩国人权委员会提交的申诉详细地阐述了媒体对感染艾滋病的外国人的比例，性侵犯，滥用毒品所进行的报道比对公众健康的数据和记录的报道对制定E-2签证的规定具有更大的影响力。[33] 如前所述，世界卫生组织和联合国艾滋病规划署曾经单方面地表示，仅仅基于无论实际或推测的艾滋病状况而实施的入境，停留或居住限制规定都构成为歧视并且不能以保障公众健康为依据而合法化。正如Wagner先生在其申诉中所述，在由于缺少有关艾滋病的数据和资讯，由于强迫性的检验和遣返给感染艾滋病的外籍教师所造成的永久性的名誉伤害以及由于深化只有外国人才有艾滋病危险的成见等原因，可以确定的是实施限制规定将对韩国的公众健康造成负面影响。[34]   

韩国人权委员会在推动艾滋病患者的人权，向汉城行政法庭阐述关于"Heo"一案的观点等方面一向站在行列的最前面。在"Heo"案中，一个外籍人员由于被检验出感染艾滋病面临着被遣返，而遣返的决定则可能侵犯了他不因其病历而受到歧视的权利。韩国人权委员会针对该案指出，"根据国际人权标准和外国案例，本委员会认为仅仅以感染艾滋病为由而命令一直在韩国停留的外国人离开韩国的决定是过分的。纵观原告当事人的情况，一个艾滋病感染者的存在不可能对公众健康构成严重的威胁，因而遣返的命令直接侵犯了原告当事人的基本人权。"[35] 根据韩国人权委员会的意见，汉城高等法院（支持汉城行政法庭的裁决）2008年就"Heo"案的裁决指出，遣返将侵犯Heo的人权，通过保障艾滋病感染者的人权而鼓励他们进行健康检查而不是将他们遣返是防止艾滋病传播和保障公众健康的最佳手段。[36]

秉持其在"Heo"一案中维护人权的坚定立场，韩国人权委员会应借此机会表明反对要求E-2教师签证外籍申请人进行艾滋病检查的立场和观点，坚持维护艾滋病感染者的权益。韩国人权委员会于2003年要求修订或撤消公布政府雇员乙肝状况的规定。鉴于乙肝不会在工作场所传播以及以防止乙肝传播为理由而强迫政府雇员进行体检的规定"不合逻辑"，韩国人权委员会指出在工作场所公布个人乙肝状况是对工作人员的歧视。[37] 人权观察组织敦促韩国人权委员会秉持一贯的立场并申明E-2签证中要求进行艾滋病检查的规定构成对个人健康医疗方面的歧视因而应当立即撤消。 

现在明确和坚决地要求撤消E-2签证中要求进行艾滋病检查以及拒绝入境或遣返的规定比以往更加重要。与"Heo"一案一样要求撤消以艾滋病为由而限制入境，停留和居住的规定相反，实际上一些国会议员却正在设法扩大限制的范围。2008年12月，一个向国会推荐的修改移民管理法的建议主张所有外籍工作人员须递交健康证明，与E-2 签证有关的体检规定须扩展到在韩国的所有外籍工作人员。[38]

一些国家的政府目前正在着手取消与艾滋病有关的入境，停留和居住的限制：2008年7月，美国废除了禁止艾滋病感染者入境的立法。韩国政府应当取消强迫性艾滋病检查和与艾滋病有关的入境，停留和居住的限制，代之以致力于建立各种针对艾滋病预防，照顾和治疗计划，从而更加有效地照顾在韩国的1万3千名艾滋病患者和[40]全体韩国国民。[41] 从即保障公众健康又维护人权的角度来看，建立和坚持实施这些计划才是真正有效地对抗艾滋病的长期战略。

能够借此向你表达我们的关注并期盼有关的意见能够有助于这个重大的议题不胜感激。       

人权观察组织

健康和人权机构主任

链接: http://www.hrw.org/en/news/2009/06/19/letter-national-human-rights-commission-korea#_edn1

组织: Human Rights Watch - 人权观察

[i] Deutsche AIDS-Hilfe e.V., "Quick Reference: Travel and Residence Regulations for People with HIV and AIDS -Information for Counsellors in AIDS Service Organizations-2008/2009," Karl Lemmen & Peter Wiessner, 8th edition, September 2008, p. 5. See also "The Global Database on HIV Related Travel Restrictions," www.hivtravel.org (accessed May 21, 2009).

[ii] United Nations, Economic and Social Council, U.N. Sub-Commission on Prevention of Discrimination and Protection of Minorities, "Siracusa Principles on the Limitation and Derogation of Provisions in the International Covenant on Civil and Political Rights," UN Doc E/CN.4/1984/4, 1984.

[iii] Kang Shin-who, "Korea Advised to Lift Ban on Foreigners with AIDS," The Korea Times, June 5, 2009, https://www.koreatimes.co.kr/www/news/nation/2009/06/113_46334.htm了 (accessed June 17, 2009).

[iv] Universal Declaration of Human Rights, G.A. Res. 217A, U.N. GAOR, 3d Sess. 1st plen. mtg. U.N. Doc A/810. 1048, art. 7(1). International Covenant on Civil and Political Rights, G.A. Res. 2200A (XXI), 21 U.N. GAOR Supp. No. 16 at 52, U.N. Doc. A/6316, 1966, art. 26. Convention on the Rights of the Child, G.A. Res. 44/25, Annex. 44, U.N. GAOR Supp. No. 49 at 167, U.N. Doc. A/44/49, 1989, art. 2. Convention on the Elimination of All Forms of Discrimination Against Women, G.A. Res. 34/180, 34. U.N. GAOR Supp. No. 46 at 193. U.N. Doc. A/34/46, 1981. International Convention on the Elimination of All Forms of Racial Discrimination, G.A. Res. 2106 (XX), Annex. 20 U.N. GAOR Supp. No. 14 at 47, U.N. Doc. A/6014, 1966.

[v] Universal Declaration of Human Rights, art. 7(1).

[vi] International Covenant on Civil and Political Rights, art. 26.

[vii] Commission on Human Rights, "The Protection of Human Rights in the Context of Human Immunodeficiency Virus (HIV) and Acquired Immune Deficiency Syndrome (AIDS)," Resolution 1995/44, March 3, 1995.

[viii] UN Human Rights Committee, General Comment 18, Non-discrimination (Thirty-seventh session, 1989), Compilation of General Comments and General Recommendations Adopted by Human Rights Treaty Bodies, UN Doc. HRI/GEN/1/Rev.1 (1994), p. 26. UN Human Rights Committee, General Comment 15, The position of aliens under the Covenant (Twenty-seventh session, 1986), Compilation of General Comments and General Commendations Adopted by Human Rights Treaty Bodies, UN Doc. HRI/ GEN/1/Rev.1 at 18 (1994).

[ix] UN Human Rights Committee, General Comment 15.

[x] Ibid.

[xi] European Court of Human Rights, East African Asians v. United Kingdom, Judgment of 15 December 1973, 3 EHRR 76. Abdulaziz, Cabales and Balkandali v. United Kingdom, Judgment of 24 April 1985, 7 EHRR 471.

[xii] OHCHR and UNAIDS, "International Guidelines on HIV/AIDS and Human Rights."

[xiii] UNAIDS and International Organization for Migration (IOM), "UNAIDS/IOM Statement on HIV/AIDS-Related Travel Restrictions," 2004.

[xiv] United Nations, "Siracusa Principles on the Limitation and Derogation of Provisions in the International Covenant on Civil and Political Rights." UNAIDS and IOM, "UNAIDS/IOM Statement on HIV/AIDS-Related Travel Restrictions."

[xv] Office of the United Nations High Commissioner for Human Rights (OHCHR) and the Joint United Nations Programme on HIV/AIDS (UNAIDS), "International Guidelines on HIV/AIDS and Human Rights," 2006.

[xvi] UNAIDS and IOM, "UNAIDS/IOM Statement on HIV/AIDS-Related Travel Restrictions." Andreas Schloenhardt, "From Black Death to Bird Flu: Infectious Diseases and Immigration Restrictions in Asia," New England Journal of International & Comparative Law, vol. 12, no. 2, 2006, pp. 33-64.

[xvii] World Health Organization, "Report of the Consultation on International Travel and HIV Infection," WHO/SPA/GLO/787.1, 1987

[xviii] World Health Organization, "Statement on Screening of International Travelers for Infection with Human Immunodeficiency Virus," WHO/GPA/INF/88.3, 1988.

[xix] Office of the United Nations High Commissioner for Human Rights (OHCHR) and the Joint United Nations Programme on HIV/AIDS (UNAIDS), "International Guidelines on HIV/AIDS and Human Rights."

[xx] UNAIDS and International Organization for Migration (IOM), "UNAIDS/IOM Statement on HIV/AIDS-Related Travel Restrictions." UNAIDS, "Statement of the UNAIDS Secretariat to the Sixty-First World Health Assembly: Agenda Item 11.9 - Health of Migrants," 2008. 

[xxi] GIPA 2010, "Entry Denied: Denying Entry, Stay and Residence Due to HIV Status: Ten Things You Need to Know," 2008, http://www.iasociety.org/Web/WebContent/File/travel_restrictions_English... (accessed June 17, 2009).

[xxii] International AIDS Society, "IAS Policy Paper: Banning Entry of People Living with HIV/AIDS," 2007, http://www.iasociety.org/Web/WebContent/File/ias_policy%20paper_07%2012%... (accessed June 17, 2009).

[xxiii] All-Party Parliamentary Group on AIDS, Migration and HIV, "Improving Lives in Britain: An Inquiry into the Impact of the UK Nationality and Immigration System on People Living with HIV," 2003.

[xxiv] Susan Timberlake, "Travel Restrictions on People Living with HIV: Going Against the Grain of Human Rights and Public Health," XVII International AIDS Conference, Mexico 3-8 August 2008.

[xxv] UNAIDS and IOM, "UNAIDS/IOM Statement on HIV/AIDS-Related Travel Restrictions."

[xxvi] All-Party Parliamentary Group on AIDS, "Migration and HIV: Improving Lives in Britain."

[xxvii] Ibid. Maria Gańczak et al., "Break the Silence: HIV/AIDS Knowledge, Attitudes, and Educational Needs Among Arab University Students in United Arab Emirates," Journal of Adolescent Health, vol. 40, 2007, pp.  572.e1-572.e8.

[xxviii] Working Group 1 of AIDS and Mobility in Europe, "HIV/AIDS and Migration in European Printed Media: An Analysis of Daily Newspapers," 2006.

[xxix] Ministry of Justice, Republic of Korea, Residence Policy Division, "New Changes on the E2 Teaching Visa Holders in Korea," December 10, 2007, http://home.windstream.net/ssheiko/e2_changes_en.pdf (accessed June 17, 2009).

[xxx] Ministry of Legislation, "Immigration and Control Act (Republic of Korea)," http://unpan1.un.org/intradoc/groups/public/documents/APCITY/UNPAN011498... (accessed June 1, 2009).

[xxxi] Bae Ji-Sook, "Deportation of HIV Positive Violates Human Rights," Korea Times, March 3, 2008.

[xxxii] United Nations, "Siracusa Principles on the Limitation and Derogation of Provisions in the International Covenant on Civil and Political Rights." UNAIDS and IOM, "UNAIDS/IOM Statement on HIV/AIDS-Related Travel Restrictions."

[xxxiii] Benjamin K. Wagner, "Working Paper: Discrimination Against Non-Citizens in the Republic of Korea in the Context of the E-2 Foreign Language Teaching Visa," May 2009 (on file with Human Rights Watch).

[xxxiv] Ibid., p. 25.

[xxxv] "Deportation of an HIV-Infected Foreigner Is Extreme," National Human Rights Commission of Korea press release, March 31, 2008.

[xxxvi] Seoul High Court, "Heo" Decision. See The Law Times, November 14, 2008, http://www.lawtimes.co.kr/LawNews/News/NewsContents.aspx?kind=AA&serial=... (accessed June 2, 2009).

[xxxvii] "Hiring-Related Medical Exams that Single Out Hepatitis B Carriers Constitutes Discrimination," National Human Rights Commission of Korea press release, November 11, 2003.

[xxxviii] National Assembly, Bill No. 3356, Amendment to the Immigration Control Act, Proposed December 2008.

[xxxix] Tom Lantos and Henry J. Hyde United States Global Leadership Against HIV/AIDS, Tuberculosis, and Malaria Reauthorization Act, H.R. 5501, 2008. A new rule by the Department of Health and Human Services addressing regulatory restrictions is under review and is expected to be posted for public comment soon.
[xl] World Health Organization (WHO), Joint United Nations Programme on HIV/AIDS (UNAIDS) and UNICEF, Epidemiological Fact Sheet on HIV and AIDS: Core Data on Epidemiology and Response: Republic of Korea: 2008 Update," 2008, http://apps.who.int/globalatlas/predefinedReports/EFS2008/full/EFS2008_K... (accessed June 17, 2009).

[xli] Joseph Amon, "Blaming Foreigners," Korea Times, March 12, 2009. Joseph J. Amon and Katherine Wiltenburg Todrys, "Fear of Foreigners: HIV-Related Restrictions on Entry, Stay, and Residence," Journal of the International AIDS Society, vol. 11, no. 8, 2008, http://www.jiasociety.org/content/11/1/8 (accessed June 17, 2009).