外文精读 | 傅华伶：香港基本法与港区国安法的关系
Relationship Between Hong Kong’s Basic Law and the National Security Law
原文来源：HKUCCL公众号
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作者简介：Fu Hualing 傅华伶，香港大学法律学院陈志海基金教授、院长
Is the National Security Law (NSL) a second Basic Law standing on its own in its relationship with the Basic Law or is it part of the Basic Law structure and subject to its control? This is a difficult question. This note considers the arguments in favour of both positions and inclines towards the latter view as the better understanding of the relationship between the NSL and the Basic Law.
the National Security Law (NSL) n. 国家安全法
Basic Law n. 基本法
关于香港基本法与港区国安法的关系，《港区国安法》独立于《基本法》，还是从属于《基本法》体系并受其约束? 这是个难题。本文对这两种观点都持赞成态度，并倾向于认为后一种观点能更好地理解《港区国安法》与《基本法》之间的关系。
Legislative Hierarchy and Principles
立法层次和原则
The constitutional rules and principles in relation to the legislature of the mainland are most clearly stated in the Legislation Law. Article 7 of this Law provides that the National People’s Congress (NPC) and its Standing Committee (NPCSC) have the exclusive power to make laws.
Legislature n. 立法机关;议会;立法部
例句: His first important chance to show his mettle came when he opened the new session of the Legislature.在他组织召开新一届立法会议时，展示他才能的首个重要机会出现了。
Mainland n. 大陆,本土 adj. 大陆的
例句: As the regime's grip on the mainland tightened over the next few years, hundreds of thousands more people fled south.随着后来几年该政权加强对大陆的控制，又有数十万人逃往南方。
National People’s Congress n. 全国人民代表大会
Standing Committee of the National People’s Congress n. 全国人大常委会
《立法法》最明确地阐述了与大陆立法有关的宪法规则和原则。其中，第七条规定，全国人民代表大会和全国人民代表大会常务委员会行使国家立法权。
The NPC makes and amends criminal law, civil law, laws relating to state organs and other “basic laws”, which remains an undefined and controversial concept in Chinese law.
Amend vt. 修改,修订;改进;纠正;改正 vi.改过自新
例句:This is a chance for the government to amend its ways.这是政府改善其行事方式的一个机会。
全国人民代表大会制定和修改刑法、民法、国家机构的和其他的基本法律，而“基本法律”在中国法律中仍是一个未被定义且有争议的概念。
The NPCSC makes and amends laws other than the basic laws. The NPCSC also has the power to make laws to partially supplement and amend the NPC laws (e.g. basic laws) when the NPC is not in session, but any addition and amendment shall not contravene the “basic principles” of the “basic laws”. [1]
Session n. 开会;开庭;会期;学期
例句：Instead, the session has sowed confusion.相反，会议引发了混乱。
In session n. 在开会, 在开庭, 在上课【法】 在开庭, 在开会
例句：Article 11 Local people's congresses at various levels shall meet in session at least once a year. 第十一条地方各级人民代表大会会议每年至少举行一次。
全国人民代表大会常务委员会制定和修改除应当由全国人民代表大会制定的法律以外的其他法律；全国人民代表大会闭会期间，对全国人民代表大会制定的法律进行部分补充和修改，但是不得同该法律的基本原则相抵触。
According to Article 97(1) of the same law, the NPC has the power to change or rescind laws made by the NPCSC that are “inappropriate.” [2]
《立法法》第九十七条第一项规定，全国人民代表大会有权改变或者撤销它的常务委员会制定的不适当的法律。
Notwithstanding these legislative rules, the Chinese Constitution does not provide a functional mechanism for constitutional review. The NPCSC occupies the commanding heights of the legislature and has the power both to make law and interpret law, rendering meaningless the possibility of post-enactment constitutional review of law.
The Chinese Constitution n. 中国宪法
Functional mechanism n. 功能机制
尽管有这些立法规则，但中国宪法没有规定宪法审查机制。全国人大常委会占据立法制高点 有权力制定法律和解释法律，这使事后宪法审查法律变得毫无意义。
The Basic Law
The Basic Law is a basic law in the Chinese hierarchy because it was enacted by the NPC and enjoys a higher constitutional status, albeit in a limited sense. Nevertheless, the Basic Law has a higher constitutional status among all laws in China because of its special function in creating a SAR in the implementation of Article 31 of the Constitution. As a result, the Basic Law is often regarded in Chinese constitutional scholarship as quasi-constitutional or a constitutional document and has been given a privileged constitutional status higher than ordinary NPC laws.
Hierarchy n. 僧侣统治集团;特权阶级;教阶制度;阶级组织
例句：Even in the desert there was a kind of social hierarchy.即使在沙漠地区也存在某种社会等级制度。
Enact vt. 扮演;规定,颁布
例句：The king could not enact laws without the sanction of Parliament.未经议会批准，国王不能制定法律。
Albeit conj. 虽然(=although);即使,不论
例句：She has a majority, albeit a reduced one. 她拥有多数票，尽管相较过去有所减少。
Implementation n. 执行;落实;供给工具;完成,成就;补充
例句：Very little has been achieved in the implementation of the peace agreement signed last January. 去年1月签署的和平协议几乎没有落实。
《香港基本法》是中国法律体系中属于基本法律，因为它是由全国人大制定的，尽管意义有限，也仍享有较高的宪法地位。然而《香港基本法》在中国所有法律享有更高的宪法地位，因为它在实施宪法第31条中设立特区的特殊职能。因此，《香港基本法》经常被视为准宪法或宪法文件，并被赋予了高于其他基本法律的特殊宪法地位。
The April 1990 Decision by the NPC is of special significance in signaling the special constitutional status of the Basic Law. On the same day it promulgated the Basic Law, the NPC made a Decision to affirm and to declare the constitutionality of the Basic Law. The Decision also establishes the supremacy of the Basic Law in the SAR by stating: “The systems, policies and laws to be instituted after the establishment of the Hong Kong Special Administrative Region shall be based on the Basic Law of the Hong Kong Special Administrative Region.”[3]
1990年4月全国人民代表大会作出的决定对表明《香港基本法》的特殊宪法地位具有特殊意义。《香港基本法》颁布之日，全国人大作出决定，确认并宣布《香港基本法》的合宪性。该决定表明了《香港基本法》在特区的至高地位，该决定规定：“香港特别行政区设立之后指定的体系、政策和法律应以《香港特别行政区基本法》为基础。”
The Basic Law constitutes the SAR, and therefore it is Hong Kong’s Constitution, mini or otherwise. Any other law, as long as it is implemented in Hong Kong, would have to be “based on”, subordinate to, and comply with the Basic Law. The NSL, as a NPCSC law, is no exception.
SAR 特别行政区（Special Administrative Region）
《基本法》是特区基本法，因此是香港的《宪法》。任何其他法律，只要在香港实施，就必须是“基于”并符合《基本法》的规定。《港区国安法》作为全国人大常委会制定的法律也没有例外。
The NSL
The NSL is a unique law, however, which follows an extraordinary law-making path. The NPC itself triggered the legislative process for the NSL through a Decision on 28 May 2020. The Decision relies directly on Article 31 and Article 62 (2) (12) (14) of the Constitution in authorising and mandating the NPCSC to make a NSL within the scope of the Decision.
NSL n. 国家安全法（National Security Law）
Trigger n. 扳机 vt .触发;开火;扣扳机;促使;引起
例句：Unresolved or unacknowledged fears can trigger sleepwalking. 悬而未决或下意识的恐惧可能引发梦游。
但是，《港区国安法》是一部特殊的法律，它遵循着一条特殊的法律制定道路。全国人大本身通过2020年5月28日的一项决定，启动了国家安全法的立法进程。该决定直接依据《宪法》第31条和第62（2)(12)(14）条，授权全国人大常委会在该决定的范围内制定国家安全法。
Both the Basic Law and the Decision derive their authority from Article 31. This is also the first time that the NPC has invoked Article 62 (2) to exercise its power in extending a national law to Hong Kong. Article 62 sets out the different functions and powers of the NPC and paragraph (2) refers to the power to “supervise the enforcement of the Constitution”.
Authority n. 管辖权;当局;当权者;威信;影响力;说服力;批准;专家;权;权力
例句：The London Stock Exchange is the competent authority under the Financial Services Act.伦敦股票交易所是金融服务条例下的法定机构。
Derive from 源于;来自;派生
《基本法》和全国人大决定的权力都来自《宪法》第三十一条。这也是全国人大首次援引第62条第2款行使权力，将国内发的适用范围延伸到香港。第62条规定了全国人民代表大会的不同职能和权力，其中第（2）款提到“监督宪法的执行”的权力。
The making of the NSL relied upon the Constitution for its application to Hong Kong outside of the framework of the Basic Law. This is a significant development in Basic Law jurisprudence and will have long-term consequences. Although the Basic Law is also relied on and referred to in the Decision, no reference is made to any specific articles of the Basic Law, leading to the argument that the NPC has indeed bypassed the Basic Law in making the NSL.
Long-term consequences n. 长期后果
在《基本法》框架外，《港区国安法》的制定有赖于《宪法》在香港的适用。这是基本法领域的一个重大发展，将会有长期后果。虽然决定也依据并提及了《基本法》，但没有原因《基本法》的任何具体条款，这导致了在制定《港区国安法》时，全国人大确实绕过了《基本法》的观点。
According to the relevant clauses in Article 62 of the Constitution, the NPC can supervise the implementation of the Constitution (62 (2)); decide on establishment of a SAR and the system to be implemented there (62(14)); and exercise other powers that shall be exercised by the highest organ of state power (62(16)). In acting according to these functions and powers, the NPC is stating, as the sovereign power, it can enact any law for Hong Kong as circumstances demand and as it sees fit.
Implementation n. [计] 实现；履行；安装启用
例句：It allows an RA to submit work to the application for easy implementation.
它允许RA向应用程序服务器提交工作，以便于执行
SAR 特别行政区（Special Administrative Region）
Exercise other powers 行使其他职权
Exercise 此处译为：权力╱权利的行使；品质的运用
例句：the exercise of power by the government政府权力的行使
Power 此处译为：政权，权力，统治地位
例句：a power struggle.一场权力的争斗
The highest organ of state power 最高国家权力机关
Organ 此处译为：（官方的）机构；机关
例句：the organs of government 政府机关
The sovereign power 最高权力
Sovereign 此处译为：掌握全部权力的；有至高无上的权力的 adj.
例句：a sovereign ruler 最高统治者
Circumstances demand 情况需求
根据《宪法》第六十二条的相关条款规定，全国人民代表大会可以监督宪法的实施（第六十二条第（二）项）;决定特别行政区的设立及其制度（第六十二条第（十四）项））；应当由最高国家权力机关行使的其他职权（第六十二条第（十六）项）。通过行使这些职权，全国人大表示，作为最高权力机关，它可以在情况需要和适当的情况下为香港制定任何法律。
On 30 June 2020, the NPCSC promulgated the NSL. Article 3 of the NSL provides that “The Central People’s Government has an overarching responsibility for national security affairs relating to the Hong Kong Special Administrative Region.” By this article, according to my reading of the Basic Law and the NSL, the NPCSC has effectively replaced Article 23 of the Basic Law with the NSL. Or one might say it is giving effect to what has always been implicit in Article 23.
NPCSC 全国人大常委会(National People's Congress Standing Committee)
Pomulgate v.
1.宣传；传播；散布（思想，事业）
2.颁布；公布（法律，律令）
例句：In January 1852 the new constitution was promulgated.
NSL 国家安全法（National Security Law）
The Central People’s Government 中央人民政府
Overarching adj. 非常重要的；首要的；概莫能外的
Give effect to 使实行起来，使生效
Implicit adj. 含蓄的；暗示的；盲从的
例句：Implicit in his speech was the assumption that they were guilty. 他话语中的言外之意是设定他们有罪。
2020年6月30日，全国人民代表大会公布《港区国安法》。《港区国安法》第三条规定:“中央人民政府对香港特别行政区有关的国家安全事务负有根本责任。”根据我对《基本法》和《港区国安法》的解读，人大常委会实际上已经把《基本法》第二十三条换成了《国家安全法》。或者有人可能会说，它使第二十三条一直隐含的内容生效了。
Article 7 of the NSL provides: “The Hong Kong Special Administrative Region shall complete, as early as possible, legislation for safeguarding national security as stipulated in the Basic Law of the Hong Kong Special Administrative Region and shall refine relevant laws”. This is a technical article used to preempt the challenge that the NSL violates the “on its own” clause in Article 23 of the Basic Law.
Stipulate v. 规定；明确要求
例句：A delivery date is stipulated in the contract.合同中规定了交货日期。
refine relevant laws 完善相关法律
Refine 此处译为:改进；改善；使精练
例句：refine Improvements 完善改进
Preempt vt. 先占；先取；以先买权获得
Violate v.
1.违反，违犯，违背（法律、协议等）
例句：to violate international law 违反国际法
2.侵犯（隐私等）；使人不得安宁；搅扰
例句：She accused the press photographers of violating her privacy. 她指责新闻摄影记者侵犯了她的隐私。
3.亵渎，污损（神圣之地）
4.强奸；奸污
《港区国安法》第七条规定："香港特别行政区应尽早完成《香港特别行政区基本法》规定的保障国家安全的立法，并完善相关法律"。这是一个技术性的条款，对《港区国安法》违反《基本法》第二十三条的 "自行立法"条款的挑战先发制人。
Given the substantial overlapping between the NSL and Article 23, in form and substance, and common legislative objectives of both laws, a more honest approach is to admit that the NPC has authorised its NPCSC to make an Article 23 law for Hong Kong to fix a potential or real serious national security crisis. The operative word in Article 7 is “complete” suggesting the NPCSC has started the Article 23 work project for Hong Kong to finish.
Substantial
adj. 大量的；实质的；内容充实的
例句：substantial connection 实质联系；密切关系；实际联系
Substantial transformation 实质性改变；实质性改变标准；实质转型
n. 本质；重要材料
Overlapping v. 重叠；与……重合（overlap 的现在分词）
In form and substance 在形式上和实质上
Authorise = authorize vt. 授权；批准；允许；委任
原文：The NPC has authorised its NPCSC to make an Article 23 law.
authorise ... to ... 授权
The operative word （习语）关键词；最重要的词语
例句：I was in love with her—‘was’ being the operative word. 在I was in love with her这句话中，was是关键词。
鉴于《港区国安法》与《香港基本法》第二十三条在形式和实质上有很大的重合，而且两部法律有共同的立法目标，比较实际的做法是承认全国人大授权全国人大常委会为香港制定第二十三条法律，以解决潜在或真正的严重国家安全危机。第七条的关键词是 "完成"，暗示全国人大常委会已经开始了为香港完成第二十三条工作项目。
Conclusion
结论
So what is the constitutional status of the NSL? It has been argued that the NSL is the second Basic Law for Hong Kong because of (A) its direct reliance on, and invocation of Article 31 and Article 62 (2) (12) and (14), and (B) the special authorisation of the NPC to make the NSL through its May Decision. According to this view, the NSL is a national law that exits in parallel to the Basic Law, supplementing and amending the Basic Law but not bound by it.
The constitutional status 宪法地位
It has been argued that 有人认为
Reliance on 依靠；信赖
Invocation n.
1.（向神或权威人士的）求助；祈祷
2.调用；启用
In parallel to 平行
In parallel with 与…平行；与…同时
Supplement 此处为动词，译为：增补；补充
Amend v.修正，修订（法律文件、声明等）
例句：He asked to see the amended version.他要求看修订本。
Be not bound by 不受...拘束
Bind-bound-bound
那么《港区国安法》的宪法地位是什么?有人认为《港区国安法》是香港的第二个基本法，原因在于首先，《港区国安法》直接依赖并援引（《宪法》）第三十一条和第六十二条的第(2)、(12)及第(14)项；其次，全国人大通过五月的决定特别授权制定《港区国安法》。根据这一观点，《国家安全法》是与《基本法》平行存在的法律，是对《基本法》的补充和修改，但不受《基本法》约束。
That view, which accepts the creation of a separate source of law and an independent national security regime in Hong Kong outside the Basic Law, would have caused a fundamental change to ‘one country, two systems’. After a careful reading of the NPC Decision, the NSL, and the explanatory notes to both the Decision and the NSL, I cannot find any evidence that such a fundamental change is intended.
One country, two systems 一国两制
Explanatory adj. 解释的；说明的；阐述的
Intend 此处为动词，译为：打算；想要
这种观点接受了在香港单独法律来源和在《基本法》之外独立国家安全制度的建立，这将会对“一国两制”产生根本性的改变。我仔细研读了人大决定和《港区国安法》，以及《决定》和《港区国安法》的说明，没有任何证据表明有这样的根本改变。
A better view is that the NSL is an ordinary piece of NPCSC legislation, subordinate in status and force to the Basic Law. It is self-evident the NSL, according to the NSL itself (Article 1), was made “in accordance with” the Basic Law. The Basic Law remains a superior law to the NSL and the supreme law in Hong Kong.[4]
Subordinate in 服从；从属于
此处subordinate为形容词，译为：隶属的；从属的；下级的
例句：They subordinate in the Jienisi office, this is produces the office which the beautiful youth idol is famous. 他们附属于杰尼斯事务所，这是个以出产美少年偶像而著称地事务所。
Self-evident adj. 显而易见的；不言而喻的；明摆着的
例句：The dangers of such action are self-evident. 这样的行动，其危险是明摆着的。
一个更好的观点是，《港区国安法》是一部普通的人大常委会立法文件，在地位和效力上都服从《基本法》。不证自明的是，根据《港区国安法》(第一条)，《港区国安法》是“根据”《基本法》制定的。《基本法》仍然是效力高于《港区国安法》的香港最高法律。
This is so not merely because the Basic Law is a basic law enacted by the NPC – the NPC can make other basic laws. Rather it is due to the Basic Law’s quasi-constitutional status. The Basic Law remains Hong Kong’s constitution by its nature.
Rather 此处为副词，译为：提出不同或相反的观点）相反，反而，而是
例句：The walls were not white, but rather a sort of dirty grey. 墙面不是白的，而是灰不溜秋的。
Be due to 是由于;由于;因为;应归于
Quasi-constitutional 准宪法的
Quasi adj. 准的；类似的；外表的
这不仅是因为《基本法》是全国人大制定的基本法律(全国人大还可以制定其他基本法律)，更是因为《基本法》的准宪法地位。《基本法》本质上仍然是香港的宪法。
The NSL is a NPCSC law that has been inserted into Annex III of the Basic Law to fill a gap left by Article 23, as contentious as the matter may be. As such, the NSL has to be consistent with, and accountable to, other provisions of the Basic Law so as to maintain the integrity of the Basic Law in accordance with Article 11.[5] The NSL may have replaced the explicit understanding of Article 23 to create a novel national security regime, but it is not immune from the control of the Basic Law.
Be inserted into 插入
此处为动词，译为：插入；（在文章中）添加
Fill a gap 弥补缺陷
Be consistent with 与...一致
Consistent adj. 始终如一的，一致的；坚持的
Be accountable to 对……负有责任
Be held accountable for 对...负责
Maintain the integrity of 保持...的完整性
Integrity n. 完整；正直；诚实；廉正 复数 integrities
In accordance with 依照；与...一致
例句：The scheme has been revised in accordance with the opinions of the masses.
方案已按照群众意见修改了。
Explicit adj. 明确的；清楚的；直率的；详述的
反义词：implicit adj. 含蓄的；暗示的；盲从的
Novel 此处为形容词，译为：新颖的；与众不同的；珍奇的。
例句：a novel feature新特征
Be immune from 不受……的影响
Be immune to 对…有免疫力；不受…的影响
《港区国安法》是被纳入《基本法》附件三的人大常委会制定的法律，虽然争议很大，但它填补了基本法第二十三条留下的空白。因此，《港区国安法》必须与《基本法》的其他条文保持一致，并对这些条文负责，以维持依照第十一条规定的《基本法》的完整性。《港区国安法》是或许取代了《基本法》第二十三条的字面含义，以建立一种新的国家安全制度，但也不能免受《基本法》的规制。
From the Chinese law perspective, as stated above, since the NPCSC both made the NSL and interprets both the NSL (Article 65) and the Basic Law (Article 158), a constitutional review of the NSL against the Basic Law by the NPCSC is unlikely to prove a meaningful exercise.
A constitutional review 宪法审查
从中国法的角度来看，如上所述，由于人大常委会既制定了《港区国安法》，又解释了《港区国安法》(第六十五条)和《基本法》(第一百五十八条)，全国人大常委会根据《基本法》对《港区国安法》进行宪法审查的可能性不大。
However, the Chinese law position does not prohibit Hong Kong courts from developing a common law jurisprudence in interpreting the NSL in accordance with the standards of the Basic Law, that is to say to reconcile any potential conflict between the two laws through judicial interpretation, subject to the interpretative power of the NPCSC. [6]
Jurisprudence n.[U] 法学；法律学
例句：a professor of jurisprudence法学教授
Reconcile v.
1.使和谐一致；调和；使配合
例句：an attempt to reconcile the need for industrial development with concern for the environment 协调工业发展的需要和环境保护之间关系的努力
2.使和解；使和好如初
例句：The pair were reconciled after Jackson made a public apology. 杰克逊公开道歉之后，这两个人又言归于好了。
3.将就；妥协
例句：He could not reconcile himself to the prospect of losing her. 他一想到有可能失去她，就觉得难以忍受。
Be subject to 使服从；使遭受；受…管制
Subject 此处为形容词，译为可能受…影响的；易遭受…的
然而,根据中国的法律位阶并不禁止香港法院通过普通法依照《基本法》的标准解释《国家安全法》，也就是说通过司法解释来调解两个法律之间的任何潜在冲突符合全国人大常委会的解释权。
Notes
[1] Article 7, Legislation Law.
[2] Article 97, Legislation Law.
[3] Decision of the National People’s Congress on the Basic Law of the Hong Kong Special Administrative Region of the People’s Republic of China (Adopted at the Third Session of the Seventh National People’s Congress on 4 April 1990)
[4] Article 62 of the NSL states that “This Law shall prevail where provisions of the local laws of the Hong Kong Special Administrative Region are inconsistent with this Law.” “Local laws” Article 62 does not include the Basic Law.
[5] In the case of HKSAR v. Ng Kung Siu and another [1999] HKCFA 10, the CFA considered the constitutionality of the National Flag Ordinance, which was enacted through art 18(2) and Annex III, thereby further confirming that national laws enacted in this way must be consistent with the Basic Law.
[6] Article 65 of the NSL provides “The power of interpretation of this Law shall be vested in the Standing Committee of the National People’s Congress”. Given that the application of the NSL would necessarily involve judicial interpretation by Hong Kong courts, Article 65 must be referring to “ultimate or final power of interpretation”.
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