高一飞:侮辱诽谤官员不能入罪是一种世界趋势

作者:高一飞 来源:http://blog.ifeng.com/article/2570506.html
河南灵宝县青年王帅因在网上发帖批评家乡政府而成为了犯罪嫌疑人。3月6日,办案民警在上海将王帅抓获并刑事拘留。办案民警称,王帅对自己在网上发帖捏造事实、侵犯他人人格的行为供认不讳。据其供述,因家人对征地地上附着物赔偿款项不满,他多次咨询相关部门后认为政策不公,拍摄了部分照片炒作此事,意欲达到个人目的。3月13日,王帅被解除刑事拘留转为取保候审。现王帅诽谤案正在办理中。(河南灵宝官方:王帅诽谤案正在办理中,http://news.cctv.com/china/20090413/101034.shtml。)

一方面,河南警方抓人有据,另一方面,“王帅诽谤案”出现后网民和媒体却是一片批评声。这一“矛盾”情形的出现,问题其实不在警方的执法,而在不合理的立法。我国刑法第246条规定“以暴力或者其他方法公然侮辱他人或者捏造事实诽谤他人,情节严重的,处三年以下有期徒刑、拘役、管制或者剥夺政治权利。前款罪,告诉的才处理,但是严重危害社会秩序和国家利益的除外。”这一立法的“但书”强调侮辱诽谤官员不权可以构成犯罪,而且因为同时会“严重危害社会秩序和国家利益”,所以不仅可以由个人提起自诉,而且还可以通过国家执法机关提起公诉。

那么,国际规则和国外立法对待侮辱诽谤官员行为是否可以入罪的态度如何呢?

《公民权利与政治权利国际公约》第19条:“人人有自由发表意见的权利”国际公约的实现往往需要通过地方性公约、判例、国际组织文件等方式将其内容具体化。欧洲人权法院和美洲人权法院等国际司法机构都已裁定所谓以”侮辱”官员为入罪依据的法律直接侵犯了言论自由权与新闻自由权。世界新闻自由委员会WPFC同意欧洲人权法院在1976年汉迪赛德诉英国一案(CASE OF HANDYSIDE v. THE UNITED KINGDOM, European Court of Human Rights, Application no.5493/72.)中的裁决:

“言论包括‘信息’和‘思想’不应当认为是对国家或某类群体的侵犯。多元、宽容和博大胸怀的社会需要这样的言论自由,否则,就不可能有民主的社会。”

1996年,世界新闻自由委员会(WPFC)表达了他们对待政府和官员侮辱法的立场:这种法律不符合民主原则和自由表达理念。在2000年,WPFC出版了一本全面的研究报告,题为“侮辱法:一种对新闻自由的侮辱”,发现还有90个国家和地区存在这样的法律。WPFC打算继续跟踪这些旨在限制言论自由和新闻自由的法律的演变。理解和相互尊重需要更多的对话和公开讨论。《媒体自由年度报告》的主任编辑卡林·卡勒卡尔说,所谓”侮辱”官员入罪的法律造成的更广泛后果是导致新闻记者实行”自我审查”,他们担心在报道政府活动时会”触犯禁令”。这种法律本身已造成“恫吓效应”,迫使新闻记者在报道中实行自我审查。

美国开国元勋曾于1789年制定了不利于新闻自由的《惩治叛乱法》(Sedition Act)。这项法律规定,如有人发表被视为侮辱美国总统和国会议员的文字,将以刑事罪论处。出版侮辱(虚假和诽谤性的材料)总统、政府或国会议员的书刊构成刑事犯罪,美国第二位总统约翰·亚当斯以此为依据大力打击对手。该法律曾遭到托马斯·杰斐逊(Thomas Jefferson)等当时很多有名望的政治家的批评。该法律从未在法庭上得到应用,且已于1801年失效。现在美国有些州和领地也有涉及诽谤罪的法律,但极少使用。1989年,最高法院在德州诉约翰逊的裁决中指出,得克萨斯州规定惩治燃烧国旗的行为违反了保障言论自由的第一修正案的宪法。最近,美国国会议员多次要求修订美国宪法,废除授权议会制订禁止亵渎美国国旗的立法。

世界新闻自由委员会于2007年4月发表了一份长达306页的报告(IT’S A CRIME: How Insult Laws Stifle Press Freedom, 1 April, 2007.),调查了70个国家在2006年实施、修改或废除相关法律的状况。报告说,这类法律“与民主和言论自由的原则水火不相容”。因为如果新闻记者因担心被逮捕或遭受其他惩罚而不敢充份监督本国公职人员的行动和政策,这些国家的公众就得不到需要的新闻和信息,无法对本国政府做出明智的判断和选择”。实施这类法律最为严厉的国家有伊朗、土耳其、白俄罗斯、津巴布韦和摩洛哥。“经常使用非常严厉的诽谤罪法”。这类法律起源于罗马帝国,目的在于“保护皇帝不受公众批评”。如今,这样的法律就像“悬挂在所有新闻媒体头上的达摩克利斯(Damocles)之剑”,新闻记者不得不”冒着被监禁和刊物被查封的危险履行向公众发布信息的职责”。

好消息是,很多国家的法院和政府间组织抵制了一系列企图强制执行针对政府官员言论的刑事惩罚。另外,在一些国家,还通过绝对废止侮辱和刑事诽谤法,或者虽然不能废除这类罪名,但至少消除了对这类犯罪的监禁处罚。这种改革已经完成的国家有:阿根廷,波斯尼亚和黑塞哥维那,智利,哥斯达黎加,加纳,肯尼亚,巴拿马,巴拉圭, 斯洛伐克,南非和斯里兰卡。2007年初,罗马尼亚实现了诽谤非罪化。“侮辱”的含义非常含糊,但解释的扩大化导致对领导人和政府的批评也可以构成侮辱。

然而,侮辱和诽谤官员罪仍然在几十个国家,包括一些所谓民主(法国,德国,奥地利和荷兰)中存在。一些国家,包括奥地利,比利时,捷克共和国,法国,德国,以色列,意大利,立陶宛,波兰,罗马尼亚,斯洛伐克和瑞士等国的法律中规定,否认二战纳粹大屠杀发生的言论是犯罪。作家大卫欧文2006年在奥地利因否认二战大屠杀而被起诉并认罪。“侮辱”的含义非常含糊,但广义的解释使对领导人和政府的批评也可以构成侮辱,具体包括针对君主、国旗或其他国家的象征,还可以是对宗教或种族或对个人的荣誉和尊严。“民主国家没有任何借口要使这样的法律存在,他们最好的借口是其他国家也在适用这样的法律。”

在中国,要避免河南“王帅诽谤案”这样的案件发生,根本上来说是从法律上废除对官员的侮辱诽谤罪。因为,对政府的批评不一定都是准确的,为了避免刑罚这把双刃剑伤及言论自由,即使政府和官员有时受到一些侮辱或者诽谤,也是政府及其官员应当付出的必要代价;另外,由于他们是掌握公权力者,有机会和能力澄清诽谤、挽回因受侮辱所损失的尊严。

2009-4-15,重庆烈士墓。

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