联合国安理会程序存漏洞，受制裁恐怖分子仍可使用被冻结资金

A United Nations Security Council meeting at the U.N. headquarters in New York on June 12. 6月12日，联合国安理会在总部纽约召开的一场会议。图片来源: LI MUZI/XINHUA/ZUMA PRESS

Loopholes in U.N. Security Council sanctions procedures are allowing blacklisted al Qaeda and Islamic State terrorists and their supporters to tap their bank accounts despite a U.N. asset freeze, according to documents reviewed by The Wall Street Journal and people familiar with the matter.

据《华尔街日报》(The Wall Street Journal)见到的文件和知情人士称，由于联合国安理会(U.N. Security Council)制裁程序存在漏洞，受制裁的基地组织(al Qaeda)和伊斯兰国(Islamic State)恐怖分子及其支持者能够在资产被联合国冻结的情况下使用自己的银行账户。

Those gaining access to their funds include Khalifa al-Subaiy, a Qatari financier who the U.S. says long provided financial support to senior al Qaeda leadership, including Sept. 11 mastermind Khalid Sheikh Mohammed.

能够动用自己资金的人士包括卡塔尔金融家Khalifa al-Subaiy，美国称他长期为基地组织高级领袖提供资金支持，包括策划9/11袭击的Khalid Sheikh Mohammed。

Mr. Subaiy was added to the United Nations terror blacklist in 2008, but the U.N. has allowed him since then to take up to $10,000 a month from frozen accounts for “basic necessities,” according to the documents and people familiar with the matter. Mr. Subaiy didn’t respond to requests for comment.

根据上述文件和知情人士提供的信息，Subaiy在2008年被列入联合国恐怖主义制裁名单，但联合国自那时起允许他每月从被冻结的账户中提取最多10,000美元来满足基本生活需要。Subaiy未回应置评请求。

U.N. records show that the Security Council allowed blacklisted individuals to access their accounts on 71 out of 72 requests between 2008 and 2018.

联合国的记录显示，在2008年到2018年期间，安理会接到被制裁人士要求使用自己银行账户的请求72次，其中的71次得到了批准。

But that figure likely doesn’t fully capture the number of times blacklisted individuals have used their bank accounts: The Security Council has designated more than 250 individuals as al Qaeda or Islamic State members or supporters, suggesting many are being allowed by home countries to tap their accounts without even seeking Security Council permission.

但上述数字可能不能完全反映被制裁个人使用自己银行账户的次数：安理会已将超过250名个人认定为基地组织或伊斯兰国成员及支持者，这表明其中有许多人被他们所在的国家允许使用自己的账户，根本无需寻求安理会的批准。

Members and supporters of terrorist groups who are blacklisted by the U.N. aren’t supposed to have access to any form of finance, in large part to ensure they aren’t supporting or organizing additional attacks.

被联合国列入黑名单的恐怖组织成员和支持者不应具有获得任何形式资金的渠道，这在很大程度上是为了确保他们无法支持或组织更多袭击。

But to allow them to pay for basic living expenses, their home countries are supposed to apply for U.N. exemptions that give these individuals access to small amounts of money based on an itemized budget request to pay for food, rent and other necessities.

但为了让他们可以支付基本生活费，他们的祖国应向联合国申请豁免，使其能获得基于分项预算申请的少量资金，支付食物、房租以及其他生活必需品的开销。

Some U.N. officials say member countries aren’t sufficiently monitoring the blacklisted terrorists living within their borders and are failing to ensure those individuals don’t have access to financing.

一些联合国官员表示，部分成员国目前未能充分监控居住在其境内的被列入黑名单的恐怖分子，未能确保这些个人不具有融资渠道。

And, they say, the exemptions procedure is too loosely structured and lacks oversight: Exemptions are granted to virtually anyone who asks and for amounts that are sometimes seen as unjustifiably large; requests don’t adequately detail needs as required; and there are no spending audits.

他们还表示，豁免程序太不严谨且缺乏监督：几乎任何要求豁免的申请人都可以获批，豁免额度往往大得不合理；申请未按规定足够详细地列明需求；也没有对支出的审计。

Another significant problem in curtailing access to frozen funds is that a home country’s request can only be rejected through a unanimous vote by all 15 members of the Security Council. “It’s very difficult to get agreement on anything at the Security Council,” one of the people said.

限制获取冻结资金在实施上的另一个重大问题是，受制裁者祖国的申请只能通过安理会全部15个理事国的一致投票驳回。其中一位人士称：“在安理会很难就任何事情达成一致。”

The problems with the exemptions procedures is also present in other U.N. sanctions programs, say those officials, who are now pushing for an overhaul of the rules.

这些官员说，联合国的其他制裁行动也存在豁免程序问题。他们正推动调整相关规则。

The U.N. Security Council, through its rotating chair—currently Indonesia’s mission—declined to comment for this article.

联合国安理会通过其轮值主席国——目前是印度尼西亚——表示对本文不予置评。

Ian Talley / Bradley Hope

2019年6月23日13:04 CST 更新

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