譯者：蔣一心
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一個年輕的哥倫比亞雷傷者。近幾年來，已紀錄的地雷傷亡者數量全球達上萬人次。攝影者：Giovanni Diffidenti A young Colombian landmine survivor. In recent years, tens of thousands of new landmine casualties have been recorded globally. Photo: Giovanni Diffidenti |
眾所皆知，因地雷、戰爭遺留爆炸物與集束彈藥意外下的生還者，極少數能夠完全融入社會的各個面向。同樣的，對於大多數受到衝突影響的發展中國家，有更多這方面的身心障礙生還者面臨同樣的問題。然而，在最近的十到二十年，全球對戰爭遺留爆炸物造成的生還者與其它身心障礙人士的權利已有高漲的意識。由於相關的意識和行動提升生還者和身心障礙者的權利，現在透過三個不同但是相關的國際公約來解決這種情況，並獲得進展。同時，這三個公約創造了一個重要的法律架構或法律工具來保護並促進生還者與身心障礙者的權利。
It is widely recognized that few survivors of incidents caused by landmines or explosive remnants of war, including cluster munitions, are fully included in all aspects of society. In most developing countries emerging from, or affected by conflict, the same can be said of the broader population of persons with disabilities in which many survivors can be included. However, over the last decade or two, there has been a global upsurge of awareness around the rights of survivors and other persons with disabilities. As a result of such awareness and activism to promote survivors' and disability rights, there has been progress to address this exclusion through three distinct but closely related international treaties. Together, these three treaties create an important legal framework, or legal toolkit, to defend the rights and promote the inclusion of survivors and other persons with disabilities.
三個公約之一的禁雷公約(MBT)，也稱為渥太華條公約，禁止人員殺傷性地雷的使用、庫存、製造和移轉，並加以摧毀。該條款於1999年生效，是第一個全球性裁減軍備的公約並約束各個締約國需依能力提供雷傷者協助，包括照顧、復健，並讓雷傷者融入經濟、社會等。
The first of these three treaties was the Mine Ban Treaty (MBT) or the Ottawa Convention, which is formally known as the Convention on the Prohibition of the Use, Stockpiling, Production and Transfer of Anti-Personnel Mines and on Their Destruction. Entering into force in 1999, the MBT is the first global disarmament treaty that binds each State Party "in a position to do so" to "provide assistance for the care and rehabilitation, and social and economic reintegration of mine victims…"
公約中關於受害者協助的語言是相當廣泛且不精確的。然而，透過後來的行動計畫，禁雷公約的締約國承諾採取實際行動以加強提供給生還者的協助，並發展這些行動的監督機制。2009年底，各個締約國同意通過從2010年到2014年的卡塔赫納行動計畫。這個計畫讓實施受害者協助有了符合人權的基礎，例如採用和履行身心障礙者權利公約。
The language of the treaty itself, in regards to victim assistance, is fairly broad and imprecise. However, through subsequent action plans, States Parties to the MBT have committed to achieve concrete actions to enhance the assistance provided to survivors and to develop the means to monitor progress in implementing these actions. At the end of 2009, States Parties agreed to the second and most recent of these, the Cartagena Action Plan 2010-2014 (CAP). This Plan sets the stage for implementing victim assistance in line with recent developments in human rights, such as the adoption and implementation of the Convention of the Rights of Persons with Disabilities.
集束彈藥公約於2010年8月1日生效，也是裁減軍備公約，禁止另一種濫傷無辜的武器。該公約採用禁雷公約與身心障礙者權利公約的經驗，它對於「以權利為基礎的受害者協助」擁有更有力的規定。如同集束彈藥聯盟所說「集束彈藥公約使國家有責任確保所有集束彈藥受害者的完整權利，適當的提供協助，包括醫療照顧、復健、心理支持和提供經濟與社會支援。這與人道法、人權法相同」
The Convention on Cluster Munitions (CCM), which entered into force on 1 August 2010, is also a disarmament treaty banning the use of another class of indiscriminate weapons. It was developed taking into consideration the lessons learned from the MBT and Convention of the Rights of Persons with Disabilities processes and contains stronger provisions on rights-based victim assistance. As stated by the Cluster Munition Coalition (CMC), "the CCM ensures the full realization of rights of all cluster munition victims by obligating states, in accordance with applicable humanitarian and human rights law, to adequately provide assistance, including medical care, rehabilitation and psychological support, and provide for their economic and social inclusion."
集束彈藥公約的受害者協助措施是強制性的，並且締約國必須針對受害者協助報告進展，不像禁雷公約對於國家回報受害者協助的狀況是採自願性的。集束彈藥公約締約國為了履行集束彈藥公約的受害者協助義務，在2010年11月通過永珍行動計畫，該計畫定義角色、責任，列出具體可測量的步驟、行動和標準，並要在一定的期限內完成。
Compliance with victim assistance measures included in the CCM is compulsory and States Parties are required to report on their progress in fulfilling victim assistance obligations, unlike the MBT, where reporting on victim assistance obligations is voluntary. In November 2010, States Parties to the CCM agreed on the Vientiane Action Plan (VAP), which defines roles and responsibilities and sets out concrete and measurable steps, actions and targets to be completed within specific time periods for the implementation of victim assistance obligations of the Convention.
2008年3月3日，聯合國身心障礙者權利公約生效，顯示身心障礙已是全球重視的人權議題。聯合國祕書長稱讚這一天為「歷史性的一刻，我們努力實現全人類的世界人權，並建立一個包容的社會」。批准身心障礙者權利公約的國家接近 100 個。這些國家開始建立新法律和政策以提升身心障礙者的權利，並且發展落實公約義務的機制。
On 3 May 2008, the United Nations Convention on the Rights of Persons with Disabilities (CRPD) entered into force, signaling a global recognition of disability as a human rights issue. The UN Secretary General hailed this day as a "historic moment in our quest for realization of the universal human rights for all persons, creating a fully inclusive society for all." Ratifications of the CRPD are now nearing 100. Countries are beginning to put new laws and policies in place to promote the rights of persons with disabilities and are developing mechanisms to implement the treaty's obligations.
雖然這三個公約的起源不同，例如裁減軍備或是人權考量，但目標都是提升生還者或是身心障礙者全面融入社會。受害者協助的原則和內涵，如同禁雷公約的行動計畫和集束彈藥公約兩者所提及的內容，並與身心障礙者權利公約所條列的身心障礙者權利相符。例如，身心障礙者權利公約第25條規定，國家有義務提供地雷或集束彈藥生還者適當的醫療照顧。這條規定承認身心障礙者有權利不受歧視並達到最高健康標準。
While the treaties originate from different contexts, either disarmament or human rights, all three share the goal of promoting the full inclusion of survivors and other persons with disabilities within society. The principles and components of victim assistance, as outlined in the Action Plans of the MBT and in the CCM, correspond to the human rights of persons with disabilities as enumerated through the CRPD. For example, a State's obligation to provide a landmine or cluster munition survivor with appropriate medical care corresponds to the CRPD's Article 25 which recognizes that persons with disabilities have the right to the highest attainable standard of health without discrimination.
在三個公約中，締約國和民間社會已設計出一套履行的措施；在組織和政府單位中建立核心團體，積極提升生還者和身心障礙者權利；並且設有國際監督機制追蹤實施進程。
For each of these treaties, States Parties and civil society have designed a set of implementation tools; there is a core group of organizations and governmental agencies that are actively promoting them; and international monitoring mechanisms exist to track implementation progress.
使這些法律框架發揮最大功能的關鍵是連結這三個公約的主題、議題、締約者、機構。連接點 – 詳細指導意見這份文件的目標是透過說明三個重要主題：生還者與身心障礙者的可親近性、就業與教育，以加強受害者協助。
The key to making the most of these legal frameworks is the strategic connection between the themes, issues, stakeholders, mechanisms across the three treaties. The document Connecting the Dots - Detailed Guidance aims to enhance victim assistance by illustrating the importance of three themes, accessibility, employment and education for survivors and persons with disabilities within the frameworks of these treaties.
所有身心障礙者，包括地雷與集束彈藥的生還者，都要面對融入社會的重重阻礙。身心障礙權利公約強調身心障礙者的權利。禁雷公約和集束彈藥公約包含協助生還者的義務。雖然一個是有關人權的公約，另兩個是人道援助義務的裁減軍備公約，不過這三者皆提及地雷與集束彈藥的生還者要融入社會的重重阻礙。應用身心障礙者權利公約，有助於加強以權利為基礎的受害者協助。同時，裁減軍備公約以及大眾對裁減軍備認知的增加，強調不論這些受害者在哪裡生活，受害者協助皆需具備容易取得、低經濟負擔的特質。
All persons with disabilities, among them landmine and cluster munitions survivors, face barriers to inclusion in society. The CRPD focuses on the rights of persons with disabilities. The MBT and CCM include obligations to assist survivors. Though one is a human rights treaty, and the other two disarmament treaties with humanitarian assistance obligations, all three have something to say regarding these barriers to inclusion. Applying the CRPD helps enhance the rights-based components of victim assistance. At the same time, the disarmament treaties and the common understandings that grew around them put an emphasis on the availability and affordability of services for survivors, wherever they live.
要使這三個公約發揮最大效用，必須加強受害者協助和促進身心障礙者的各種權利。接下來的內容，會說明促使此三個公約連結的實務指導。
To make the most of the three treaties it is necessary to take steps both to improve victim assistance and to promote the broader rights of persons with disabilities. The following pages provide a practical guide to making such connections.
我們也運用其它提供指導的文件，例如，卡塔赫納行動計畫、卡塔赫納行動計畫實施建議和永珍行動計畫。
We have also used other documents that offer guidance on best practices when implementing these treaties as starting points, such as the CAP, the Recommendations on Implementing the CAP presented by the Co-Chairs of the MBT's Standing Committee on Victim Assistance in 2009, and the VAP.
這些實務指導涵蓋：
l 概述此三個公約的一般連結。
l 探索公約所關注身心障礙者與生還者，他們的可親近性、就業與教育三個主題之間的連結，這能加強受害者協助的實現與提昇身心障礙者的權利。
l 為此三個主題提供政策和實務經驗差距的案例。
l 如何透過倡議、政策和立法讓這三個公約和行動計畫能夠在國家的層級施行。
This guide will:
l Outline the general connections between the three treaties;
l Explore the connections between the treaties around each of the three thematic areas of accessibility, employment and education which can both enhance the implementation of victim assistance and the fulfillment of the rights of persons with disabilities;
l Provide examples of gaps in policy and practice experienced in these same three thematic areas;
l Look at how these treaties and their action plans can be applied at the national level through advocacy, policy and legislation.
最後，附件A的第一和第二部份，深入探討可親近性，並提供烏干達案例，透過他們促進地雷和集束彈藥生還者融入社會的經驗，來瞭解如何解決實行的阻礙。附件B，顯示有生還者的國家對這三個公約簽署或施行的情形。
Finally, Annex A, parts I and II, takes a deeper look at accessibility and presents a case study from Uganda to provide guidance on how to tackle barriers to implementation, based on the experience in promoting accessibility in their countries gained by landmine and cluster munition survivors. Annex B shows current treaty status of relevant states with survivors.
我們希望這個指導能協助非政府組織和政府都能更瞭解如何運用這三個公約促進受害者協助的執行。
We hope that this guide will help both non-governmental organizations (NGOs) and governments better understand how they can use these three treaties to make progress in implementing victim assistance.連結網址：http://www.icbl.org/index.php/icbl/Library/News-Articles/Work/VA-guidance-document
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