Another Article 23 national security law fiasco would shatter Hong Kong government’s credibility
Like many other countries, China has a national security law. It has the power to extend it to Hong Kong by adding it to Annex III of the Basic Law, a law enacted by the National People’s Congress in 1990 setting out the arrangements for the “one country, two systems” formula under which Hong Kong is governed.
Yet, in view of the separate legal and judicial systems applied in Hong Kong, Beijing agreed that Hong Kong can have its own national security law and imposed a duty on the special administrative region to do so. This constitutional duty is laid out in Article 23 of the Basic Law, which requires Hong Kong to “enact laws on its own” to prohibit seven national security offences.
An inchoate attempt to fulfil this constitutional duty failed in 2003. Since then, national security legislation to implement Article 23 has been much maligned, misrepresented and feared. After dithering for over 21 years, the government made a heroic comeback on Tuesday and unveiled a consultation document much lengthier and more comprehensive than the 2002 version.
Should people be worried? Not unless one is predisposed to distrust and fear anything to do with China.
In the past 20 years, the advance of technology and geopolitical competition has compelled many countries to update and enact new national security laws to counter new threats. What Hong Kong is doing is no different from what many other common-law jurisdictions have done .
For example, mounting concern in Britain about hostile state threats led to the enactment of the National Security Act in July 2023. The new law updates legislation on the protection of official secrets and espionage, and introduced new offences of sabotage and foreign interference.
The UK is not the only nation introducing new legislation to address new and evolving threats. In recent years, Australia and Singapore have also enacted new legislation to counter foreign influence and interference, “ hostile information campaigns” and “ online falsehoods and manipulation”.
In 2003, Hong Kong’s national security bill was launched against a background of relative calm, despite much discontent with the sharp economic downturn and apparent mishandling of the severe acute respiratory syndrome crisis. National security threats had yet to rear their ugly head. It was inconceivable that Hong Kong could be the target of a hostile state threat or secessionist or subversive activity.
The prolonged and violent disturbances of 2019 changed all that. Hong Kong was no longer invulnerable. Scenes of black-clad protesters blocking roads, hurling molotov cocktails at the police, storming the Legislative Council, vandalising the central government’s liaison office and occupying university campuses shattered many Hong Kong people’s sense of invulnerability.For ordinary people, threats to personal safety and physical property became real, while the government struggled to keep order. The seat of government could well have been stormed – I believe the rioters were held back only by a subliminal fear that the People’s Liberation Army would be unleashed.
To quell the unrest, Beijing enacted a national security law for Hong Kong at breakneck speed, sidestepping the snarled Hong Kong legislative process at that time. The national security law enacted by the National People’s Congress Standing Committee on June 30, 2020 immediately scotched the protests and restored stability and order. But that did not erase Hong Kong’s constitutional responsibility to enact local legislation to safeguard national security, as required by Article 23 of the Basic Law.
Twenty-one years after the first attempt, and more than halfway into the promise of no change to Hong Kong’s way of life for 50 years, as stated in the Basic Law, Hong Kong cannot afford another failure to pull off this long-outstanding constitutional and political mission. Another debacle would shatter the local government’s credibility.
This time, however, it seems the government is much better prepared. The consultation document stresses not just Hong Kong’s constitutional duty, but also the common law principles underpinning Hong Kong’s criminal justice system, and the government’s adherence to the fundamental rights and freedoms enshrined in the Basic Law and the international human rights treaties that apply to Hong Kong. It is a laudable attempt to reassure doubters with honourable words.
The consultation document also points out upfront that many jurisdictions, including the US, UK, Canada, Australia and Singapore, all have comprehensive legislation to safeguard national security. A list of such statutes is annexed to the consultation document for public information.
As expected, the document did not include the offences of secession and subversion. The legislative loopholes in respect of these two offences have been mended by Beijing’s national security law enacted in 2020, and there is no need for Hong Kong to reinvent the wheel.
While proposing the legal changes to update the offences covered and strengthen enforcement measures, the government stops short of introducing a foreign influence registration scheme or similar arrangements, as the UK has done. An integrated concept of national security is adopted, but the government has also exercised restraint and balance.
In view of the complexity and sensitivity of issues relating to national security, many concerns will be raised, and much explanation will be needed in the coming months. The government must avoid previous blunders, and keep both content and presentation precise and reassuring to ensure success.
【《南華早報》文章中譯本:假如發生另一場《基本法》第二十三條國安法風波 將摧毀香港政府的公信力】
與許多國家一樣,中國也有國家安全法。根據1990年由全國人民代表大會通過的《基本法》,中國有權將國安法納入《基本法》附件三,用於在「一國兩制」原則下管理香港。
然而,考慮到香港實行不同的法律和司法體系,北京同意香港可以制定自己的國家安全法律。《基本法》第二十三條規定香港特區有憲法責任制定自己的國安法,禁止七項危害國家安全的犯罪行為。
2003年,香港第一個不完善的國安立法嘗試失敗。此後,為貫徹基本法第二十三條的立法工作遭到詆毀、誤解和恐慌。在躊躇21年後,政府終於在本周英勇出擊,發布的咨詢文件比2002年版本更加詳盡全面。
若再次失敗,不但無法履行憲法責任,也將會極大損害香港政府的信譽。政府必須如實說明立法目的,並通過廣泛社會對話確保立法得到支持,滿足公眾合理憂慮。
公眾是否應該感到擔憂?除非一個人先入為主地不信任和恐慌中國相關事物。
過去20年,科技進步和地緣政治競爭迫使許多國家更新和制定新的國家安全法律,以應對新的威脅。香港正在做的與許多其他普通法權威地區所做的相若。
例如,英國對敵對國家威脅日益關注,促使其於2023年7月制定了《國家安全法》。這項新法更新了保護官方秘密和間諜行為的立法,並引入了破壞和外國干預等新的罪行。
英國不是唯一推出新法規應對新出現和不斷發展威脅的國家。近年來,澳大利亞和新加坡也制定了新的法律,以應對外國影響力和干涉、「敵對信息ocampaign」和「在線假信息和操縱」。
香港做的也沒什麼不同,只是更新法律來應對新威脅。公眾只要不帶有先入為主的成見,就不必過於擔憂。
2003年,香港國家安全立法提出時,盡管民怨很大,對經濟衰退和SARS疫情處理不當均深感不滿,但整體環境相對平靜。國家安全威脅尚未顯現。香港尚未可能成為敵對國家或分離主義分子的目標。
但2019年持續動亂改變了一切。香港不再無懈可擊。黑衣示威者封鎖道路、向警方投擲汽油彈、占領立法會大樓、破壞中聯辦及占領大學,嚴重傷害港人安全感。對普通民眾,個人安全和財產安全真正面臨威脅,政府施加秩序也十分吃力。各級政府機關都有可能被占領——我認為只有人民解放軍隱含介入的威脅,令暴徒才能收手。
為了止暴制亂,北京以迅雷不及掩耳之勢為香港制定國安法,繞過當時香港立法會的複雜程序。2020年6月30日由全國人大常委會通過的國安法立刻制止騷亂,恢復秩序。但這並沒有消除香港根據基本法第二十三條自行立法,維護國家安全的憲制責任。
如今21年後再次嘗試國安立法,且《基本法》明確香港50年不變的時日已經過半,香港再也無法承受立法失敗的後果。若再次失敗,將摧毀地方政府的信譽。
不過,這次政府作出更加充分的準備。咨詢文件強調不僅是香港的憲制責任,也注重香港刑事司法體系的普通法原則,以及政府依照基本法和適用於香港的《國際人權條約》保障基本權利與自由。這是將信將心的嘗試,用合適及正面詞藻安撫懷疑者。
文件還明示,包括美國、英國、加拿大、澳大利亞和新加坡在內的許多國家和地區,都已有全面國安立法。並附錄相關法例供公眾參考。
這次立法或將是一次重要機會,驗證香港政府誠意履行責任與維護核心價值的決心。
一如預期,該文件並未包含分裂國家及顛覆國家中央政權這兩項罪行。2020年北京通過的國家安全法已補充了香港在這兩個罪行上的立法空白,香港無需重複制定。
當提出更新涵蓋的罪行和加強執行力度的法律變更時,政府並未引入類似英國那樣的外國勢力登記制度等安排。採用了全面國家安全概念,但政府也同時施加適度平衡。
考慮到國家安全問題的複雜性與敏感性,今後數月必將湧現許多疑慮與解釋需求。政府必須避免前車之鑒,內容和表述必須精准可靠,確保取得成功。公眾也應理解政府在這方面的艱難抉擇。
只要程序公正,政策合理,公眾理解與支持,這次立法有可能成為香港回歸以來的一個重要裡程碑。