香港特别行政区：共和国的祝福

2020-07-20 15:47:27 224

HKSAR – The Luckily Blessed Metropolitan of the Republic

香港特别行政区：共和国的祝福

July 7, 2020

When history starts, it has a point in time. Hong Kong Special Administrative Region (“HK”, “HK SAR” or “the Region”) has a point in time, that is 1997, when it returned to the motherland of the People’s Republic of China ( “PRC” or “China”). It had the blessing of “One Country and Two Systems” from the very beginning. “One Country” means it is an inalienable part of the Republic, and “Two Systems” means its capitalist system and life style it inherits from the British colony prior to 1997 will survive 50 years until 2047.

历史长河，闪耀着无数的重要时刻。香港也有属于自己的重要时刻，那就是1997年。这一年，香港回到了祖国的怀抱。回归伊始，香港便拥有了来自共和国的“一国两制”的祝福。“一个国家”，表示它是共和国不可分割的一部分；“两种制度”，表示它在1997年之前继承自英国殖民地的资本主义制度和生活方式将持续50年，直到2047年。

This article discusses a positive and assertive move for the Law of the People’s Republic of China on Safeguarding National Security in the Hong Kong Special Administrative Region[1] (“National Security Law”), focusing on the legitimacy of the authority to legislate of the law and the respect for both the “One Country” concept and respect for the Hong Kong autonomy and rule of law under “One country, Two systems” structure.

本文讨论了《中华人民共和国香港特别行政区维护国家安全法》（以下简称“《香港国安法》”）的积极正当举措，包括“一国两制”下立法权与合法性，以及对“一国”的尊重和对“两制”架构中香港自治权与法治的充分尊重。

The Blessing

祝福

The blessing of “One Country, Two Systems” is expressly provided under the Basic Law of the Hong Kong Special Administrative Region of the People's Republic of China (“Basic Law”).[2] In the future, we should call Hong Kong as HKSAR in terminology as this is in compliance with what it is under law in China, and preventing people from possibly tending to seek any kind of independence. HKSAR is an inalienable part of the Republic.[3]

“一国两制”的祝福，明确规定在《中华人民共和国香港特别行政区基本法》（以下简称“《基本法》”）。自此，我们应该使用“香港特别行政区”或“香港特区”的术语来称呼香港，因为这符合中国法律的规定，并有利于防止一些人寻求任何形式的独立。根据《基本法》第一条，香港特别行政区是中华人民共和国不可分割的一部分。

The Constitution of the People’s Republic of China (“The Constitution”) says expressly it has SARs in the country. “The state may establish special administrative regions when necessary. The systems to be instituted in special administrative regions shall be prescribed by law enacted by the National People’s Congress (“NPC”) in the light of the specific conditions”- Article 31, the Constitution.[4] China has adopted a unitary system and Article 31 of the Constitution serves as the legal basis for the NPC to authorize the HKSAR to legislate. As we all know, the Constitution is the foundational document that a country sticks to in governing its own affairs under the rule of law. Sticking to the terms of Constitution of a country is like breathing air, a natural thing that we humans do day by day, with or without masks. As a rigid basic provision, Article 11 of the Basic Law[5] recognizes the supreme position of the Constitution in the HKSAR.

《中华人民共和国宪法》（以下简称“《宪法》”）第三十一条明确规定：“国家在必要时得设立特别行政区。在特别行政区内实行的制度按照具体情况由全国人民代表大会以法律规定。”值得注意的是，我国是单一制国家，而《宪法》第三十一条是全国人大对香港特区进行授权的直接依据。众所周知，在法治的语境下，宪法是一个国家在治国理政过程中必须遵守的基本法律文件。坚持一个国家的宪法条款就如同呼吸空气，这是我们每时每刻生命的必需品，无论佩戴口罩与否。《基本法》第十一条作为刚性的基本法条款，对《宪法》在香港特区至高无上的地位进行了进一步阐释。

HKSAR in Terminology

关于“香港特别行政区”这一术语

HK is an SAR, so let us call it an SAR, and just deal with the lucky part of Hong Kong as an SAR. It is an SAR of China, so just let China have the SAR from one country perspective. It is not another country, but China, the country that has the State property of the land[6] where the SAR is. Let it be, and let it be China.

香港是一个特别行政区，因此我们称其为特别行政区或香港特区。我们也把香港的幸运归结于特别行政区制度。作为中国的特别行政区，从“一个国家”的角度来看，中国，而非其他国家拥有香港特别行政区。中国是对特别行政区所在地之上的土地享有主权的国家。是的，是中国享有主权。

Hong Kong is particularly blessed with “Two Systems” under the Basic Law. In reality, it has a common law system long passed from history that protects the capitalist system and way of life under the rule of law. As an SAR of China, HK is expressly blessed at least under an umbrella of two protections from the one country, in addition to its “two systems”: national defense and foreign affairs. These two aspects are within the jurisdiction of the Central Government under the Basic Law (Article 18, Basic Law) from the outset.[7] The Standing Committee of NPC may legislate in these two areas for the benefit of Hong Kong SAR. Other matters outside the limits of the autonomy of the SAR specified under the Basic Law are also the jurisdiction of the country.

根据《基本法》，香港受惠于“两种制度”的特殊安排。实际上，香港拥有一个悠久的历史悠久的普通法体系，并可以保护资本主义制度和法治下的生活方式。作为中国的特别行政区，香港除了享受“两种制度”的安排外，还受到“一个国家”至少“外交和国防”两方面的明示呵护。从一开始，“外交和国防”这两个方面就属于中央根据《基本法》第十八条所享有的管辖事权的范围。全国人民代表大会常务委员会可以在这两个领域为香港特别行政区立法。其他超出特别行政区自治范围的事务也是中央管辖的事务。

It is commonly understood that the National Security Law aims to protect the security interest of all Chinese people of the entire country, including Hong Kong compatriots, at the national level. It is reasonably expected that the law is to legally address and set legal standards against those activities (such as those provided under Article 23 of the Basic Law[8]) that damage local public security order and concurrently affects the national security interest of the country.

众所周知，《香港国安法》旨在在国家层面上保护包括香港同胞在内的全体中国人民的安全利益。可以合理期待的是，该法旨在规制那些破坏本地公共安全秩序并同时影响中国国家安全利益的行为（如《基本法》第二十三条规定的活动），并为此提供相应的法律规则。

Legal Basis for the Legislation

国安法立法的法律依据

As was mentioned above, the Constitution is the fundamental basis of the PRC laws as well as of the laws of HKSAR, being the supreme law over the laws of the entire land mass of China, including the Basic Law. In terms of the legal basis of the legislation, the provisions set out in the Constitution should be noticed. The preamble of the Constitution, Articles 28, 51, 52, 53, 54 and 55 stipulate the obligations to safeguard national unity, national security and national interests. Article 31 and Paragraph 14 of Article 62 entitle the NPC to decide upon the system of special administrative regions. As such, where the national security issues arise in China (including the HKSAR), the NPC has the authority to enact relative laws to safeguard the interests of the country and the society as a whole.

正如上文所述，《宪法》是我国根本大法，从香港特别行政区的法律体系来看，《宪法》也是高于《基本法》的中国领土上的最高法。对于国安法立法权的探讨，我们应首先注意《宪法》的法律文本。《宪法》的序言、第28条、第51条、第52条、第53条、第54条、第55条分别规定了公民维护国家统一、国家安全与国家根本利益的义务；第31条与第62条14款赋予了全国人民代表大会决定特别行政区制度的权力。因此，无论中国哪里（不管是大陆还是香港）出现危害国家安全的行为，为了维护整个国家与社会的安全，全国人大有权进行立法。

Under the Constitution, the Basic Law enjoys the highest ranking in the hierarchy within the legal system of HKSAR. The authority of national security legislation is also embodied herein. In accordance with Article 14 of the Basic Law, the Central People’s Government “is responsible for the defense” of the HKSAR, while the Government of the HKSAR is “responsible for the maintenance of public order”.[9] It should also be noted that Article 18 of the Basic Law also stipulates that “in the event that the Standing Committee of the National People's Congress… by reason of turmoil within the Hong Kong Special Administrative Region which endangers national unity or security and is beyond the control of the government of the Region, decides that the Region is in a state of emergency, the Central People’s Government may issue an order applying the relevant national laws in the Region”.[10] It is evidenced from the above-mentioned two provisions that the powers of the Central Government and those of the Government of the HKSAR are clearly defined and divided, and the former is strictly limited to foreign affairs and state security and the legal authority to apply national laws to HKSAR in the state of emergency.

在香港特区的法律框架内，《基本法》是仅此于《宪法》的法律，也对全国人大关于国家安全法的立法权作出了规定。《基本法》第14条分别规定了中央对外的外交权和国防事务权与香港特区自行实施的对内社会治安权。而第18条则规定，“全国人民代表大会常务委员会……因香港特别行政区内发生香港特别行政区政府不能控制的危及国家统一或安全的动乱而决定香港特别行政区进入紧急状态，中央人民政府可发布命令将有关全国性法律在香港特别行政区实施”。通过《基本法》14条与18条，中央与香港特区的权力界定清晰，分工明确，而中央的权力局限于外交和国防事务与“紧急状态”下在香港特区实施全国性法律的法律决定权。

From meaning of words, some say national security is part of national defense, as it is the purpose of national defense. Some others argue that national security is a concept larger than national defense but covers national defense. No doubt that national defense, which logically covered national security in the core part of the lexicon, is a central matter under the Basic Law, and by Article 23, the Central Government authorized the HKSAR to legislate on some national security affairs.

从词义上来看，有人认为“国安”是“国防”的一部分，因为国安是国防的目的。有其他人的观点是“国安”的概念大于但包括“国防”。毋庸置疑，国防事务，词义中隐含国安的重要意义，在法律上明示属于中央事务之一。通过《基本法》23条，中央授权香港特别行政区进行有关国安事项的立法。

Article 23 entitles the Region a special power of legislation on national security on its own. Although it could be evidenced from the term “on its own” that the Region enjoys the autonomy under the Constitution, it should also be noted that “shall” means the Region has the obligation to legislate instead of exercising its discretion on this matter.[11] In other words, the country has granted the SAR with a high degree of autonomy to legislate on certain matters regarding national security. Should the HKSAR fail to complete the legislative work, the Central People’s Government may exercise its supervisory power and enact a law to safeguard the national security in accordance with Articles 31 and 62[12] of the Constitution.[13]

《基本法》第23条则是赋予香港特区立法权，对于危害国家安全的行为和活动自行立法。第23条的“自行”一词赋予了香港特区的立法权力，而更值得注意的是，“应”一字表明了第23条立法的义务性。换句话说，中央出于对香港特区的信任，授予香港特区高度自治权，对某些涉及国家安全事项进行立法。然而在香港特别行政区未能完成相关立法时，中央有权根据《宪法》第31条、62条行使监督权与相关的立法权。

The New Legislation

新的立法

The new legislation confirmed the Central Government’s fundamental responsibility for Hong Kong’s national security affairs and Hong Kong’s constitutional responsibility to safeguard the national security of the PRC. On the one hand, it is stipulated in this law that HKSAR government will set up the Committee for Safeguarding National Security, chaired by the Chief Executive and include an Adviser appointed by the Central People’s Government.[14] A central government office will also be set up in Hong Kong to analyze the national security situation, subject to the supervision of the national supervisory organs.[15] Also, HKSAR government should strengthen its efforts to monitor and manage schools and societies where national security is involved.[16] When it comes to cases concerning national security, the Chief Executive should appoint designated judges to preside over these cases.[17] Four offences are embodied in this law, including secession, subversion, terrorist activities, and collusion with a foreign country or with external elements to endanger national security, and penalties are stipulated thereinto.[18] The provisions incorporated therein fill in the gap of national security that currently exists in HKSAR, by providing relevant legal basis. It would also guarantee the long-term prosperity and stable development of HKSAR.

新的立法明确了中央政府对香港有关国家安全事务的根本责任与香港政府维护国家安全的宪制责任。一方面，该法规定，香港设立维护国家安全委员会，由行政长官担任主席，中央人民政府向委员会指派国家事务顾问。同时，中央政府将在香港设立维护国家安全公署，分析研判香港特别行政区维护国家安全形势。香港政府应加强对学校、社会团体的监督与管理。对于涉及危害国家安全的案件，香港行政长官应当指派法官进行审理。该法规定了四种危害国家安全的犯罪行为（分裂国家罪、颠覆国家政权罪、恐怖活动罪、勾结外国或者境外势力危害国家安全罪）与相应的刑罚。这些规定将有助于堵住香港国家安全漏洞，提供相应的法律依据，并为香港的长期繁荣稳定提供保障。

On the other hand, the National Security Law has stricken a balance between maintaining national security and guaranteeing the rights. In providing a stable environment as well as a rule of law environment, it specifically upholds legal principles, e.g. no penalty without a law, presumption of innocence, no penalty without previous law, protection against double jeopardy, etc. In implementing this law, it is essential that enforcement authorities protect human rights and practice rule of law, in order to protect the basic rights of Hong Kong residents. Article 4 of the National Security Law reiterates the protection of the rights and freedoms enjoyed by the Hong Kong residents under the Basic Law, the International Covenant on Civil and Political Rights (“ICCPR”), which has not been ratified by the PRC, and the International Covenant on Economic, Social and Cultural Rights (“ICESCR”), only Article 8, Clause 1 (a) of which has been implemented in the PRC. The basic rights enjoyed by Hong Kong residents are fully ensured under the National Security Law, which is consistent with one of the objectives of the law to achieve prosperity and stability and protect legitimate rights and interests.

另一方面，香港国安法在维护国家安全和保障权利之间保持了平衡，不仅为人权的实现提供了稳定的政治与法治环境，还具体规定了罪刑法定、无罪推定、禁止溯及既往、一事不再罚等重要法律原则。在实施该法律时，首要的是执行机构需充分保障人权，践行法治原则，充分保障香港居民的基本权利。该法第4条重申了根据《基本法》《公民权利和政治权利国际公约》《经济、社会与文化权利的国际公约》对香港居民权利与自由的保护。其中，《公民权利和政治权利国际公约》尚未被中国大陆批准，而《经济、社会与文化权利的国际公约》虽已被批准，但只有第八条第一款（甲）项被实施。[Office1] 由此可见，香港居民的基本权利在《香港国安法》下得到了充分保障，也与《香港国安法》实现繁荣稳定和保障合法权益的立法目的保持一致。

Concluding Remarks

结束语

The enactment of the National Security Law has ensured the implementation of “One Country, Two Systems”, which is the key to HKSAR’ national security and a necessary step for HKSAR's long-term prosperity and stability. In implementing this Law, mechanisms should be established in accordance with the law to ensure effective law enforcement, maintain the balance between freedom and order, and respect the high degree of autonomy in HKSAR.

《香港国安法》的制定保障了“一国两制”的实施，是香港维护国家安全的关键，也是维护香港长期繁荣稳定的必要之举。在实施本法中，应依法建立实施法律的体制机制，确保法律能够得到有效执行，同时维护自由与秩序的平衡，尊重香港的高度自治权。

We trust that this new law from the state level fills in the gap currently existing in the “One Country Two Systems Construct”.

我们相信这一新的国家层面立法填补迄今为止“一国两制”中存在的真空。

As ordinary citizens, we should be grateful to those who brings us the ordinary security days.

作为普通公民，对于给我们提供日常安全保障的人，我们应该心怀感恩。

References

[1] The Law of the People’s Republic of China on Safeguarding National Security in the Hong Kong Special Administrative Region (hereinafter as the “National Security Law”), effective as of June 30, 2020.

[2] The Basic Law of the Hong Kong Special Administrative Region of the People’s Republic of China 1997 (hereinafter as “Basic Law”).

[3] Article 1 of the Basic Law.

[4] The Constitution of the People’s Republic of China 2018 (hereinafter as the “Constitution”), Article 31.

[5] Article 11 of the Basic Law: “In accordance with Article 31 of the Constitution of the People’s Republic of China, the systems and policies practised in the Hong Kong Special Administrative Region, including the social and economic systems, the system for safeguarding the fundamental rights and freedoms of its residents, the executive, legislative and judicial systems, and the relevant policies, shall be based on the provisions of this Law.

No law enacted by the legislature of the Hong Kong Special Administrative Region shall contravene this Law.”

[6] Article 7 of the Basic Law provides that the land and natural resources within the Hong Kong SAR shall be State property.

[7] Article 18 of the Basic Law provides, “The laws in force in the Hong Kong Special Administrative Region shall be this Law, the laws previously in force in Hong Kong as provided for in Article 8 of this Law, and the laws enacted by the legislature of the Region.

National laws shall not be applied in the Hong Kong Special Administrative Region except for those listed in Annex III to this Law. The laws listed therein shall be applied locally by way of promulgation or legislation by the Region.

The Standing Committee of the National People's Congress may add to or delete from the list of laws in Annex III after consulting its Committee for the Basic Law of the Hong Kong Special Administrative Region and the government of the Region. Laws listed in Annex III to this Law shall be confined to those relating to defence and foreign affairs as well as other matters outside the limits of the autonomy of the Region as specified by this Law (emphasis added).

In the event that the Standing Committee of the National People's Congress decides to declare a state of war or, by reason of turmoil within the Hong Kong Special Administrative Region which endangers national unity or security and is beyond the control of the government of the Region, decides that the Region is in a state of emergency, the Central People's Government may issue an order applying the relevant national laws in the Region.”

[8] Article 23 of the Basic Law provides, “The Hong Kong Special Administrative Region shall enact laws on its own to prohibit any act of treason, secession, sedition, subversion against the Central People's Government, or theft of state secrets, to prohibit foreign political organizations or bodies from conducting political activities in the Region, and to prohibit political organizations or bodies of the Region from establishing ties with foreign political organizations or bodies.”

[9] Article 14 of the Basic Law: “The Central People’s Government shall be responsible for the defence of the Hong Kong Special Administrative Region.

The Government of the Hong Kong Special Administrative Region shall be responsible for the maintenance of public order in the Region.

Military forces stationed by the Central People's Government in the Hong Kong Special Administrative Region for defence shall not interfere in the local affairs of the Region. The Government of the Hong Kong Special Administrative Region may, when necessary, ask the Central People’s Government for assistance from the garrison in the maintenance of public order and in disaster relief.

In addition to abiding by national laws, members of the garrison shall abide by the laws of the Hong Kong Special Administrative Region.

Expenditure for the garrison shall be borne by the Central People’s Government”.

[10] Supra note 7.

[11] Zhou, Y & Zhang, X 2016, ‘On the Legislative Power of the National People’s Congress over the National Security Issue in Hong Kong Special Administrative Region’, Journal of Jianghan University（Social Science Edition）, vol. 33, no. 4, pp. 5-11.

[12] Article 62 of the Constitution: “The National People’s Congress exercises the following functions and powers:

…

(2) to supervise the enforcement of the Constitution;

…

(14) to decide on the establishment of special administrative regions and the systems to be instituted there;

…

(16) to exercise such other functions and powers as the highest organ of state power should exercise”.

[13] Luo, W 2012, A New Study on the Basic Law of Macao Special Administrative Region, Social Sciences Academic Press, Beijing, p. 136.

[14] Articles 12-15 of the National Security Law.

[15] Articles 48, 49, 50 of the National Security Law.

[16] Articles 9, 10 of the National Security Law.

[17] Article 44 of the National Security Law.

[18] Articles 20-35 of the National Security Law.

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