國務院新聞辦公室16日發表《新疆的職業技能教育培訓工作》白皮書。雙語全文如下：
新疆的職業技能教育培訓工作
Vocational Education and Training in Xinjiang
（2019年8月）
中華人民共和國
國務院新聞辦公室
The State Council Information Office of
the People’s Republic of China
August 2019
目錄
Contents
前言
Preface
一、開展教育培訓工作勢在必行
I. Urgent Needs for Education and Training
二、依法開展教育培訓工作
II. Law-Based Education and Training
三、教育培訓的內容
III. Content of Education and Training
四、學員的基本權利得到保障
IV. Protection of Trainees』 Basic Rights
五、教育培訓工作取得顯著成效
V. Remarkable Results in Education and Training
六、探索出去極端化的有益經驗
VI. Experience in Countering Extremism
結束語
Conclusion
前言
Preface
恐怖主義、極端主義是人類社會的共同敵人，反恐、去極端化是國際社會的共同責任。消除恐怖主義、極端主義這一嚴重危害人民生命安全的社會毒瘤，維護人的尊嚴和價值，保障人民的生命權、健康權、發展權，使人民在安寧祥和的社會環境中幸福生活，是世界上任何一個負責任的政府執政的基本理念和根本任務。
Terrorism and extremism are the common enemies of humanity, and the fight against terrorism and extremism is the shared responsibility of the international community. It is a fundamental task of any responsible government, acting on basic principles, to remove the malignant tumor of terrorism and extremism that threatens people’s lives and security, to safeguard people’s dignity and value, to protect their rights to life, health and development, and to ensure they enjoy a peaceful and harmonious social environment.
多年來，國際社會為打擊和預防恐怖主義、極端主義，保障人民生命安全和生活幸福，作出了不懈努力，付出了巨大犧牲。世界上許多國家和地區，從本國和本地區實際出發，積極探索打擊和預防恐怖主義、極端主義的有效措施和辦法，積累了寶貴經驗。
Over the years, to ensure public safety and wellbeing, the international community has spared no effort and made tremendous sacrifices in preventing and combating terrorism and extremism. Many countries and regions, in light of their own conditions, have developed effective measures and drawn valuable lessons from these efforts.
新疆是中國反恐、去極端化鬥爭的主戰場。一段時期，新疆深受恐怖主義、宗教極端主義之害，人民生命安全受到嚴重威脅。新疆堅持標本兼治，打擊與預防相結合，通過依法設立職業技能教育培訓中心（以下簡稱「教培中心」），開展職業技能教育培訓工作（以下簡稱「教培工作」），著力消除恐怖主義、宗教極端主義滋生蔓延的土壤和條件，有效遏制了恐怖活動多發頻發勢頭，最大限度保障了各族人民的生命權、健康權、發展權等基本權利，取得了反恐、去極端化鬥爭重要階段性勝利。
Xinjiang is a key battlefield in the fight against terrorism and extremism in China. For some time Xinjiang has been plagued by terrorism and religious extremism, which pose a serious threat to the lives of the people in the region. Addressing both the symptoms and root causes and integrating preventative measures and a forceful response, Xinjiang has established vocational education and training centers in accordance with the law to prevent the breeding and spread of terrorism and religious extremism, effectively curbing the frequent terrorist incidents and protecting
the rights to life, health, and development of the people of all ethnic groups. Worthwhile results have been achieved.
一、開展教育培訓工作勢在必行
I. Urgent Needs for Education and Training
恐怖主義、極端主義在新疆由來已久。20世紀初至40年代末，民族分裂勢力、宗教極端勢力藉助「泛突厥主義」「泛伊斯蘭主義」思潮，試圖在新疆建立「政教合一」的「東突厥斯坦」國。形形色色的「東突」勢力為了達到分裂中國的目的，鼓吹宗教極端主義，實施了一系列暴力恐怖活動。在此後相當長的一段時間裡，宗教極端主義對新疆的滲透從未停止，暴力恐怖活動時有發生。
Terrorism and extremism have a long history in Xinjiang. From the early 20th century to the late 1940s, separatist and religious extremist forces, spreading 「Pan-Turkism」 and 「Pan-Islamism」, attempted to create a theocratic state they called 「East Turkistan」 in Xinjiang. In an attempt to split China, such forces advocated religious extremism and carried out a series of terrorist activities. For years religious extremism continued to make inroads into Xinjiang, resulting in incidents of terrorism.
20世紀90年代以來，恐怖主義、極端主義在全球蔓延加劇，給人類社會造成重大災難。美國、英國、法國、德國、西班牙、比利時、俄羅斯、土耳其、埃及、印度、印度尼西亞、紐西蘭、斯裡蘭卡等世界上許多國家和地區都發生了受極端主義影響的暴力恐怖襲擊案（事）件，造成大量人員傷亡和重大財產損失，嚴重威脅世界和平，給人類社會發展投下陰影。
Since the 1990s the global spread and aggravation of terrorism and extremism has wrought havoc. Influenced by extremism, terrorist attacks and related incidents have caused heavy casualties and property damage in the United States, the United Kingdom, France, Germany, Spain, Belgium, Russia, Turkey, Egypt, India, Indonesia, New Zealand, Sri Lanka, and other countries and regions. World peace is under serious threat, and the future of humanity is overshadowed.
據不完全統計，自1990年至2016年年底，民族分裂勢力、宗教極端勢力、暴力恐怖勢力在中國新疆地區策劃實施了數千起爆炸、暗殺、投毒、縱火、襲擊、騷亂、暴亂等系列暴力恐怖案（事）件，造成大量無辜群眾被害，數百名公安民警殉職，財產損失無法估算。
Between 1990 and the end of 2016 separatists, religious extremists and terrorists plotted and carried out several thousand acts of terrorism such as bombings, assassinations, poisoning, arson, assaults, and riots in Xinjiang. Many innocent people were killed and several hundred police officers died in the line of duty. The property losses incurred were enormous.
恐怖主義、極端主義的產生有著複雜的國際國內背景，受政治、經濟、文化等各方面因素影響，與特定國家、特定地區、特定民族、特定宗教、特定社會制度無關。反恐、去極端化既是世界性課題，也是世界性難題。多年來，一些國家和地區為了有效反恐、去極端化，根據自身實際，積極探索打擊和預防恐怖主義、極端主義的具體路徑和辦法，但由於各自的歷史文化傳統、經濟社會發展水平、公民受教育程度及就業能力狀況等存在差異，採取的辦法和舉措也不盡相同。
Terrorism and extremism germinate in a complex domestic and international environment. They are rooted in political, economic and cultural factors, and are not specific to particular countries, regions, ethnic groups, religions or social systems. The fight against terrorism and extremism is a global challenge. Over the years different countries and regions have adopted different measures of preventing and combating terrorism and extremism, based on their respective historical and cultural traditions, their level of social and economic development, and the level of education and employability of their citizens.
新疆特別是位於南疆的喀什地區、和田地區、克孜勒蘇柯爾克孜自治州、阿克蘇地區等四地州，由於宗教極端主義滲透時間長，影響範圍廣，毒害程度深，暴力恐怖案（事）件在一段時間多發頻發，且涉案人員眾多，影響群體龐大，導致反恐、去極端化形勢嚴峻。
For some time Xinjiang, especially Kashgar Prefecture, Hotan Prefecture, Aksu Prefecture and Kizilsu Kirgiz Autonomous Prefecture in the south, where religious extremism has had a long and widespread presence, suffered badly from frequent acts of terrorism. Large numbers of people were involved and even more were affected. The scale of the problem posed a serious challenge to China’s efforts in fighting terrorism and extremism.
宗教極端勢力利用信教群眾樸素的宗教感情，藉助當地信教人口眾多、對外交流不暢、農牧業就業承載有限、信息閉塞、現代科學知識匱乏等客觀因素，散布宗教極端主義。宗教極端勢力肆意歪曲宗教教義教規，將極端主義與宗教捆綁在一起，與廣大信教群眾捆綁在一起，與社會生活捆綁在一起，鼓動推翻世俗政權，妄圖建立教法統治的國家。宗教極端勢力否定一切世俗觀念和現代文明成果，鼓吹所謂「聖戰殉教進天堂」，殘害所謂「異教徒」「叛教者」，致使當地正常宗教活動遭到嚴重破壞，中道正信的宗教人士受到排斥、迫害，甚至被殺害。因宗教極端主義影響，大量信教群眾被套上了沉重的精神枷鎖，正常生產生活受到嚴重幹擾，社會經濟發展受到嚴重製約。
Exploiting people’s religious beliefs, extremist forces spread religious extremism through Xinjiang’s large religious population, among people who have limited means of communication outside their own communities, limited employment opportunities in farming and animal husbandry, limited sources of information, and limited knowledge of modern science. Deliberately distorting religious doctrines and canons, religious extremists have bound extremism to religion, to religious believers, and to society as a whole, and incited people to overthrow secular governments and establish theocratic states. They deny the concepts and achievements of modern secular civilization, inciting followers to 「engage in a holy war and die for their beliefs in order to enter heaven」, and injuring and killing those they describe as 「pagans」 and 「renegades」. Normal religious activities in Xinjiang have been seriously disrupted, and upstanding religious individuals have been ostracized, persecuted, or killed. For many religious believers, the mental shackles imposed by religious extremism have become unbearable, disturbing their normal life and work. Social and economic development in the region has also suffered as a result.
為了強化對信教群眾的精神控制，宗教極端勢力持續煽動信教群眾抵制學習國家通用語言文字，排斥現代科學知識；歪曲炮製所謂「教法、家法」，將其作為行為準則，對抗國家憲法法律；鼓吹「來世天定」，蠱惑信教群眾拒絕學習掌握就業技能、改善經濟條件、提升自我發展能力。大量群眾不具備掌握國家通用語言文字能力，不具備基本法律知識。
To strengthen their psychological control over religious believers, extremist forces have incited people to boycott the standard spoken and written Chinese language and reject modern science. They act in accordance with fabricated 「religious law」 and 「domestic discipline」, and defy the Constitution and state laws. They spread word about a 「next life where one’s fate is predestined」, and deceive religious believers into rejecting the kind of vocational skills training by which they can improve their economic conditions and their capacity for self-development. A large part of the population could not read and write in the standard spoken and written Chinese language, and they had no basic knowledge of the law.
在宗教極端主義的滲透和控制下，許多人參與或者被教唆、脅迫、引誘參與恐怖活動、極端主義活動，但尚屬情節輕微，或未造成實際危害後果；一些人雖因恐怖活動犯罪、極端主義犯罪被定罪處刑，但並未完全脫離宗教極端主義束縛。由於上述人員受宗教極端主義毒害深，喪失了對正常生活和法律界限的理性辨識能力，如果不對他們採取積極幹預措施，就不能解除宗教極端主義對他們的桎梏，就無法使他們融入正常的社會生活，就不可能使他們實現個人的更好發展。
Influenced and controlled by religious extremism, many people have engaged in – or have been instigated, coerced or enticed to engage in – terrorist and extremist activities, but they have not committed serious crimes or inflicted actual harm. It is hard for some people who have been convicted of terrorist or extremist crimes to abandon extremist views, as their minds have been poisoned to the extent of losing reason and the ability to think sensibly about their lives and the law. Without necessary intervention measures it will not be possible for them to cast off the shackles of religious extremism, get back to normal life, and improve their prospects for a better future.
面對嚴峻形勢和複雜情況，新疆的反恐、去極端化堅持標本兼治方針，既依法嚴厲打擊少數嚴重暴力恐怖犯罪，又最大限度地教育挽救感染宗教極端主義、有輕微違法犯罪的人員。依法設立教培中心，對學員進行系統的教育培訓，是遏制暴力恐怖案（事）件多發頻發、剷除宗教極端主義滋生蔓延土壤的迫切需要，也是有效提升學員文化知識水平、掌握勞動技能、促進就業和增加收入的迫切需要，更是實現新疆社會穩定和長治久安的迫切需要。
Faced with this severe and complex problem, Xinjiang has upheld the principle of addressing both the symptoms and root causes in its fight against terrorism and extremism, by striking hard at serious terrorist crimes, which are limited in number, and by educating and rehabilitating people influenced by religious extremism and involved in minor violations of the law. In accordance with the law it has established a group of vocational centers to offer systematic education and training in response to a set of urgent needs: to curb frequent terrorist incidents, to eradicate the breeding ground for religious extremism, to help trainees acquire a better education and vocational skills, find employment, and increase their incomes, and most of all, to safeguard social stability and long-term peace in Xinjiang.
二、依法開展教育培訓工作
II. Law-Based Education and Training
新疆開展教培工作的做法既符合國家法治精神和要求，又體現了國際社會反恐、去極端化的原則和理念。
Education and training in Xinjiang is practiced in line with the spirit and requirements of the rule of law in China. It also reflects the ideas and principles of counter-terrorism and deradicalization as practiced by the international community.
新疆根據《中華人民共和國國家安全法》《中華人民共和國刑法》《中華人民共和國刑事訴訟法》《中華人民共和國反恐怖主義法》和《宗教事務條例》等法律法規，依照法定程序，制定並修改完善了《新疆維吾爾自治區實施〈中華人民共和國反恐怖主義法〉辦法》《新疆維吾爾自治區去極端化條例》兩部地方性法規。
In recent years, in line with the National Security Law of the People’s Republic of China, Criminal Law of the People’s Republic of China, Criminal Procedure Law of the People’s Republic of China, Counterterrorism Law of the People’s Republic of China, and Regulations on Religious Affairs, Xinjiang has enacted and revised, in accordance with legal procedures, two local regulations – the Measures of the Xinjiang Uygur Autonomous Region on Implementing the Counter-terrorism Law of the People’s Republic of China, and the Regulations of the Xinjiang Uygur Autonomous Region on Deradicalization.
中國法律區分了違法行為和犯罪行為，並規定了不同的執法司法主體和處理程序。其中，視具體違法或犯罪情節不同，有的由包括公安機關在內的行政機關依法予以行政處罰；有的由公安機關偵查終結，移送檢察機關審查後，由檢察機關依法作出不起訴決定；有的在檢察機關提起公訴後，由審判機關依法審理定罪處刑。
Chinese law distinguishes between unlawful and criminal acts, and prescribes different law enforcement and judicial bodies and different processes for handling the two kinds of acts. Depending on the specific circumstances, some offenders or criminals are subjected to punishment by administrative organs, including public security organs, in accordance with the law. Some, after their cases have been investigated by public security organs and transferred, are examined by procuratorial organs and there is a decision not to prosecute. Some are tried, convicted and sentenced by judicial organs in accordance with the law after procuratorial organs have initiated public prosecution.
具體在恐怖主義、極端主義違法犯罪案件中，依照法律規定，視具體情節及當事人表現，除由檢察機關提起公訴，由審判機關定罪處刑的外，有的案件是由公安機關等行政機關依法作出處理，有的案件是由檢察機關依法作出不起訴決定。這些不同的處理方式和程序，恰恰體現了國家寬嚴相濟的刑事政策和教育挽救的方針。為了貫徹標本兼治的原則，中國法律和地方性法規對參與恐怖活動、極端主義活動的人員，還規定了幫教、安置教育等措施。
Chinese law distinguishes between unlawful and criminal acts, and prescribes different law enforcement and judicial bodies and different processes for handling the two kinds of acts. Depending on the specific circumstances, some offenders or criminals are subjected to punishment by administrative organs, including public security organs, in accordance with the law. Some, after their cases have been investigated by public security organs and transferred, are examined by procuratorial organs and there is a decision not to prosecute. Some are tried, convicted and sentenced by judicial organs in accordance with the law after procuratorial organs have initiated public prosecution.
新疆依據《中華人民共和國反恐怖主義法》《新疆維吾爾自治區實施〈中華人民共和國反恐怖主義法〉辦法》《新疆維吾爾自治區去極端化條例》等法律法規，設立了教培中心，開展幫教等工作。目前進入教培中心的學員有三類：一是被教唆、脅迫、引誘參與恐怖活動、極端主義活動，或者參與恐怖活動、極端主義活動情節輕微，尚不構成犯罪的人員。二是被教唆、脅迫、引誘參與恐怖活動、極端主義活動，或者參與恐怖活動、極端主義活動，有現實危險性，尚未造成實際危害後果，主觀惡性不深，能夠認罪悔罪，依法不需要判處刑罰或者免除刑罰，自願接受培訓的人員。三是因恐怖活動犯罪、極端主義犯罪被定罪處刑，刑滿釋放前經評估仍有社會危險性，人民法院依法決定在刑滿釋放後進行安置教育的人員。對第一、第三類人員，根據《中華人民共和國反恐怖主義法》第二十九條、第三十條的規定，依法進行幫教或安置教育。對第二類人員，則本著寬嚴相濟的刑事政策，打擊少數、挽救多數，對認罪悔罪、自願接受培訓的人員，在依法作出不起訴決定後對其進行幫教。
In accordance with the Counter-terrorism Law of the People’s Republic of China, the Measures of the Xinjiang Uygur Autonomous Region on Implementing the Counter-terrorism Law of the People’s Republic of China, the Regulations of the Xinjiang Uygur Autonomous Region on Deradicalization, and other laws and regulations, vocational education and training centers have been established in Xinjiang. 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 acknowledged their offences and were contrite about their past actions and thus do not need to be sentenced to or can be exempted from punishment, 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 a potential threat to society, and who have been ordered by people’s courts in accordance with the law to receive education at the centers. In accordance with Articles 29 and 30 of the Counter-terrorism Law, people in the first and third categories will be given assistance and education or receive job-related education at the centers. 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 balancing compassion and severity. 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 prosecution in accordance with the law.
新疆開展教培工作的具體法律程序是，由有關機關依照《中華人民共和國刑法》《中華人民共和國刑事訴訟法》《中華人民共和國反恐怖主義法》等相關法律法規規定，對相關行為性質和情節進行認定，對相關人員作出處理。其中，對第一類人員，由公安機關依法作出處理，由教培中心進行幫教；對第二類人員，由公安機關依法偵查，檢察機關經審查作出不起訴決定後，由教培中心進行幫教；第三類人員在刑滿釋放前經評估具有社會危險性的，依據人民法院決定在刑滿釋放後進行安置教育。
The specific procedures for carrying out education and training in Xinjiang require that relevant authorities determine the nature and circumstances of the acts and deal with the above three categories in accordance with the laws and regulations, such as the Criminal Law, Criminal Procedure Law, and Counter-terrorism Law. The first category should first be handled by public security organs, and then given assistance and education by vocational education and training centers. The second category should first be investigated by public security organs, and if the procuratorial organs, after reviewing the cases, have made the decision not to institute legal proceedings, they should then be given assistance and education by education and training centers. The third category, after being assessed before their release from prison and found to pose an ongoing risk to society, shall be placed at such centers to receive education to help them reintegrate into society in accordance with the decision of people’s courts.
對上述人員，通過「集中培訓、寄宿學習、實踐培養」等多種形式開展免費職業技能教育培訓，並在學員考核達標後頒髮結業證書。學員結業後，可以自主擇業，也可以由有關部門協助安排就業。
The vocational education and training centers shall provide the people mentioned above with residential vocational training free of charge, and issue certificates of completion when the trainees reach the expected criteria. After graduation, the trainees can choose their own jobs, or employment can be arranged for them with the assistance of relevant authorities.
新疆教培工作也符合國際社會有關公約、倡議中明確的基本原則。作為國際社會負責任的一員，中國積極支持聯合國在國際反恐合作中發揮主導和協調作用，堅持遵循《聯合國憲章》和其他國際法原則準則，支持聯合國安理會通過的一系列反恐決議，大力推動《聯合國全球反恐戰略》（60/288）全面實施。目前，中國已加入《制止恐怖主義爆炸的國際公約》《制止向恐怖主義提供資助的國際公約》《制止核恐怖主義行為國際公約》《反對劫持人質國際公約》等國際反恐公約。此外，在上海合作組織框架下，中國與有關國家締結了《打擊恐怖主義、分裂主義和極端主義上海公約》《上海合作組織成員國合作打擊恐怖主義、分裂主義和極端主義構想》《上海合作組織反恐怖主義公約》《上海合作組織反極端主義公約》《上海合作組織成員國合作打擊恐怖主義、分裂主義和極端主義2019－2021年合作綱要》《上海合作組織成員國和阿富汗伊斯蘭共和國關於打擊恐怖主義、毒品走私和有組織犯罪行動計劃》等文件。
The education and training efforts in Xinjiang are also in line with the basic principles clearly defined in the relevant international conventions and initiatives. As a responsible member of the international community, China supports the United Nations in playing a leading and coordinating role in international cooperation against terrorism. China upholds the UN Charter and other principles and norms of international law. It has supported a series of resolutions on combating terrorism adopted by the UN Security Council, and contributed to the full implementation of the UN Global Counter-Terrorism Strategy. China has joined a number of international counter-terrorism conventions, including the International Convention for the Suppression of Terrorist Bombings, International Convention for the Suppression of the Financing of Terrorism, International Convention for the Suppression of Acts of Nuclear Terrorism, and International Convention Against the Taking of Hostages. Under the framework of the Shanghai Cooperation Organization (SCO), China and the other countries involved have signed the following documents: the Shanghai Convention on Combating Terrorism, Separatism and Extremism, Cooperation Between SCO Member States on Combating Terrorism, Separatism and Extremism, SCO Convention on Combating Terrorism, SCO Convention on Combating Extremism, SCO Cooperation Programme on Fighting Terrorism, Separatism and Extremism for 2019-2021, and SCO Plan of Action for Cooperation with the Islamic Republic of Afghanistan on Fighting Terrorism, Drug Trafficking and Organized Crimes.
聯合國《防止暴力極端主義行動計劃》（70/674）報告指出，貧困、失業、缺乏就業機會和教育程度低，以及暴力極端主義團體隨意歪曲和利用宗教信仰、族裔差異和政治思想體系等方面是形成暴力極端主義的背景和成因。行動計劃建議，防止暴力極端主義必須擴大應對措施，更早介入，消除促成暴力極端主義的因素，用預防措施配合打擊暴力極端主義。行動計劃提出，將國家發展政策與可持續發展目標保持一致，消除一切形式的貧困，確保優質教育，讓全民享有終身學習機會；為暴力極端主義團體的人提供教育機會和經濟機遇，鼓勵其脫離暴力極端主義團體；向青年提供繼續學習機會、職業培訓資源、創業才能培養。新疆開展教培工作正是中國落實國際社會反恐、去極端化倡議及其理念的具體表現。
The United Nations Plan of Action to Prevent Violent Extremism notes that poverty, unemployment, the absence of alternative employment opportunities, and low levels of education, are the background causes of violent extremism, along with the distortion and exploitation by violent extremist groups of religious beliefs, ethnic differences and political ideologies. The Plan of Action says that to counter violent extremism, we have to broaden our responses, engage earlier, and address the drivers of violent extremism. We need to complement actions to counter violent extremism with preventive measures. The Plan of Action proposes to align national development policies with the Sustainable Development Goals, end poverty in all its forms, ensure quality education, and promote lifelong learning opportunities for all; to encourage individuals to leave violent extremist groups by developing programs that place an emphasis on providing them with educational and economic opportunities; and to support young people in gaining access to continued learning and vocational resources, and in incubating their entrepreneurial talent. The education and training efforts of Xinjiang manifest China’s implementation of international counter-terrorism and deradicalization initiatives and measures.
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