残疾人权利公约中的合理便利——考量基准与保障手段
Reasonable Accommodation in the Convention on the Rights of Persons with Disabilities——Benchmark of Consideration and Method of Protection 曲相霏; 1:中国社科院国际法研究所 摘要(Abstract)：

合理便利是联合国残疾人权利公约中的一个关键概念。公约中的便利广泛而全面,只以合理为限制条件。合理可以从有效、必要、适当和不造成过度或不当负担四个方面予以解释。合理便利的提供者不能拒绝为合理便利承担大于微不足道的负担,只有过度或不当负担才可以作为免责理由。在判断过度或不当负担时,成本/收益的经济分析是基本但不惟一的分析工具。合理便利不同于无障碍建设,其基本特征是个人化和协商性,一般要求提供者积极行动、区别对待。公约缔约国对合理便利承担着三重义务,即直接提供的义务、确保提供的义务和促进的义务。合理便利反映了反歧视手段和工具的新发展。人权理论中的连带关系理论和财产权的社会义务理论为合理便利提供了正当性支持。

关键词(KeyWords)： 联合国残疾人权利公约;;合理便利;;反歧视

Abstract:

Keywords:

基金项目(Foundation): 2014年度中国人权研究会研究课题项目阶段性成果

作者(Author): 曲相霏;

Email:


参考文献(References)： [1]信春鹰主编:《中国人民共和国残疾人保障法释义》,法律出版社2008年版。[2]曲相霏:《人权离我们有多远——人权的概念及其在近代中国的发展演变》,清华大学出版社2015年版。[3]黄裔:“合理便利概念的浅析”,载《反歧视评论》(第1辑),法律出版社2014年版。[4]李敬:“《残疾人权利公约》中的不歧视原则”,载《反歧视评论》(第1辑),法律出版社2014年版。[5]张翔:“财产权的社会义务”,载《中国社会科学》2012年第9期。[6][法]卡雷尔·瓦萨克:《人权的不同类型》,张丽萍、程春明译,载《法哲学与法社会学论丛》第4辑,中国政法大学出版社2001年版。(1)《公约》中文文本中的合理便利对应着英文文本中的reasonable accommodation。但是严格而言,便利与accommodation从词义上讲并不是恰当的对应词,这两个语词也都不是《公约》理念的最佳表达。其实,中文中的合理调适与英文中的reasonable adjustment不仅相互对应,也非常明确地体现了《公约》的精神和理念,是更为适当的措词。但是《公约》已经通过和生效,现在所能做的就是对《公约》的措词给予符合《公约》本意的清晰解释。值得注意的是,2012年10月残疾人权利委员会对中国《首次履约报告》提出的《结论性意见》的中文作准文本使用了合理照顾来对应英文中的reasonable accommodation,这是不恰当的,应予纠正。本文除在直接引用原文时尊重原文的表达方式,在中文行文中统一使用《公约》中文作准文本采用的合理便利这一表达。(2)2006年12月13日该公约及其任择议定书经第61届联合国大会通过,2007年3月30日开放给各国签署,2008年5月3日正式实施。截止到2015年10月23日,该公约有160个签署国和159个缔约国,其任择议定书有92个签署国和88个缔约国。(http://treaties.un.org/Pages/View Details,last visited on Oct.23,2015.)《公约》的英文版本使用的是persons with disabilities,只在引用《关于残疾人的世界行动纲领》(World Programme of Action concerning Disabled Persons)时使用了disabled person。《公约》的中文版本使用的是残疾人。中国法律法规通用残疾人。本文引用《公约》及相关法律法规文献资料时,使用原文称呼。其它情况下,视行文方便同等使用残疾人、残障人士、身心障碍人、障碍人、障碍者等称呼。(3)Gerard Quinn and Charles O’Mahony,“Disability and Human Rights:A New Field in the United Nations”,in C.Krause and M.Scheinin(eds.),International Protection of Human Rights:A Text Book(Turku/Abo:Abo Academi University Institute for Human Rights,2nd revised edn,2012),p.269.(1)Rosemary Kayess and Philip French,“Out of Darkness into Light:Introducing the Convention on the Rights of Persons with Disabilities”,(2008)8(1)Human Rights Law Review,pp.1-34.(2)Gerard Quinn and Charles O’Mahony,“Disability and Human Rights:A New Field in the United Nations”,in C.Krause and M.Scheinin(eds.),International Protection of Human Rights:A Text Book(Turku/Abo:Abo Academi UnivE rsity Institute for Human Rights,2ndrevised edn,2012),p.275.(3)中国在《公约》开放签署日当天(2007年3月30日)就签署了《公约》。2008年6月26日全国人大常委会批准了《公约》。2008年8月31日《公约》在中国正式实施。(4)美国到目前仍未加入该《公约》,而加拿大、澳大利亚等西方发达国家在批准或加入《公约》时也都作了保留。(5)包括《残疾人权利公约》在内,目前联合国共有9大核心国际人权公约,中国已经批准或加入了其中6个,而在批准或加入时中国没有作出任何保留的目前还只有《残疾人权利公约》这一个。《公约》不仅受到中国的欢迎,它还赢得了世界性的赞誉。在《公约》的开放签署日,有82个国家签署了《公约》,创下了联合国的历史纪录,这使得《公约》成为联合国历史上在开放签署日获得最多签署国的公约。当日还有44个国家签署了《公约》的《任择议定书》,牙买加还直接批准了《公约》。除了在开放签署日获得最多签署国,《公约》还创下了其他若干个第一:它是人类进入21世纪后通过的第一个国际人权公约;是联合国第一个开放给区域一体化组织(regional integration organizations,如欧盟)签署和批准的人权公约;在联合国历史上第一次由受公约直接影响的人士积极有效地参与到公约的制定过程中,大量残疾人和残疾人组织在《公约》制定过程中发挥了重要作用;是联合国历史上磋商和制定速度最快的公约,从联合国大会决定设立“拟订全面的综合的保护和促进残疾人权利和尊严的国际公约特设委员会”(Ad Hoc Committee,下文简称“特设委员会”)来考虑制定公约的问题,到《公约》获得通过,仅用了5年时间。(6)2008年4月全国人大常委会对1991年《残疾人保障法》进行了修订,以符合《公约》的要求。(7)例如第25条、第50条、第56条等。(8)尽管全国人大法制工作委员会编写的《残疾人保障法释义》一书,将合理便利纳入了关于《残疾人保障法》第3条“基于残疾的歧视”的解释中,但该书并不是中国的法律渊源。参见信春鹰主编:《中国人民共和国残疾人保障法释义》,法律出版社2008年版,第15页。(9)《残疾人参加普通高等学校招生全国统一考试管理规定(暂行)》,新华网,http://education.news.cn/2015-05/15/c_127804329.htm,最后访问日期:2015-09-03。(10)CRPD/C/CHN/1.(11)CRPD/C/CHN/CO/1.(1)Ad Hoc Committee on a Comprehensive and Integral International Convention on the Protection and Promotion of the Rights and Dignity of Persons with Disabilities,http://www.un.org/esa/socdev/enable/rights/adhoccom.htm(last visited on Oct.11,2015).(2)其英文表述如下:“Reasonable accommodation means necessary and appropriate modification and adjustments not imposing a disproportionate or undue burden,where needed in a particular case,to ensure to persons with disabilities the enjoyment or exercise on an equal basis with others of all human rights and fundamental freedoms.”(3)http://www.un.org/esa/socdev/enable/rights/ahcwgreporta7.htm(last visited on Jun.11,2015)(4)http://www.un.org/esa/socdev/enable/rights/ahc3.htm(last visited on Dec.24,2014).(5)CRPD/C/11/D/8/2012.http://tbinternet.ohchr.org/_layouts/treatybodyexternal/TBSearch.aspx?Lang=en&TreatyI D=4&DocT ypeC ategoryI D=6(last visited on Jun.18,2015)(1)Coleman v.Attridge Law and Steve Law,European Court of Justice,Case C-303/06,Opinion of the Advocate GeneC ouncil Directive(EC)2000/78.Establishing a General Framework for Equal Treatment in Employment and Occupation 2000.ral,31 January 2008.(2)See Conclusion Observation of the Committee on the Rights of Persons with Disabilities:Spain,UN doc.CRPD/C/ESP/CO/1,19 October2011,para.19.(3)美国是最早规定合理便利的国家,美国的实践也为其他国家提供了参照。目前各国对合理便利的规定呈现出相似性,其中菲律宾的法律规定更是与美国的基本相同。因此本文在分析合理便利的要素时将主要以美国为例来予以说明,辅之以其他国家的相关情况。(4)Americans with Disabilities Act of 1990(ADA),Sec.12111.Definitions.(5)Israel’s Equal Rights for People with Disabilities Law,5758(1998).(6)The 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Ltd.Vs.Edwards(1997)[1997]IRLR157.(7)例如为考生提供现行盲文试卷;提供大字号试卷;免除外语听力考试;优先进入考点、考场;考点、考场配备专门的工作人员(如引导辅助人员、手语翻译人员等)予以协助;允许视力残疾考生携带答题所需的盲文笔、盲文手写板、盲文作图工具、橡胶垫、无存储功能的盲文打字机、台灯、光学放大镜、盲杖等辅助器具或设备;允许听力残疾考生携带助听器、人工耳蜗等助听辅听设备;允许行动不便的残疾考生使用轮椅、拐杖,有特殊需要的残疾考生可以自带特殊桌椅参加考试;适当延长考试时间,等等。该文件同时也规定了一些物质性便利,例如设立环境整洁安静、采光适宜、便于出入的单独标准化考场;考点、考场设置文字指示标识、交流板等;配设单独的外语听力播放设备;提供能够完成考试所需、数量充足的盲文纸和普通白纸。(8)截止到2015年6月19日,联合国残疾人权利委员会已经接受了8项来文。其中两项来自瑞典,两项来自匈牙利,英国、德国、巴西和阿根廷各一项。(1)CRPD/C/7/D/3/2011.http://tbinternet.ohchr.org/_layouts/treatybodyexternal/TBSearch.aspx?Lang=en&TreatyI D=4&DocT ypeC ategoryI D=6(last visited on Jun.18,2015)(2)Vande Zande v.State of Wisconsin Dept.of Administration,44 F.3d 538(7th Cir.1995)(3)http://www.un.org/esa/socdev/enable/rights/ahc3.htm(last visited on Dec.24,2014).(1)Vande Zande v.State of Wisconsin Dept.of Administration,44 F.3d 538(7th Cir.1995)(2)Project Management Institute v.Latif[2007],Industrial Relations Law Reports 579.转引自Anna Lawson,Reasonable Accommodation in the Convention on the 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Jun.19,2015)(4)关于人权主体转型与人权内容扩张的系统分析,参见曲相霏:《人权离我们有多远》,清华大学出版社2014年版,第1章、第3章。(1)《残疾高考生连出黑马残疾考生应享合理便利》,人民网,http://xj.people.com.cn/n/2015/0629/c188521-25402787.html,最后访问日期:2015-08-23。(2)《教育部称将为聋人考教师证提供合理便利》,http://www.chinadp.net.cn/news_/picnews/2015-12/04-14882.html,最后访问日期:2015-12-11。(3)相关综述参见曲相霏:“《残疾人权利公约》与中国的残疾人权利保障”,载《法学》2013年第8期。(4)该《管理办法》第3章“使用管理”部分明确规定,残疾人就业保障金可用于“补贴用人单位安排残疾人就业所需设施设备购置、改造和支持性服务费用。补贴辅助性就业机构建设和运行费用。”《关于印发<残疾人就业保障金征收使用管理办法>的通知》,财政部官网,http://szs.mof.gov.cn/bgtZ aiX ian Fu Wu_1_1_11/mlqd/201509/t20150914_1458276.html,最后访问日期:2015-05-20。