聖戰分子鑽申根協定空子

When Mehdi Nemmouche, a French jihadi, made his way home from the Syrian battlefield in March, he crossed borders with the same ease as millions of other European travellers.

當法籍聖戰分子邁赫迪•內穆什(Mehdi Nemmouche)今年3月從敘利亞戰場回家時，他和數百萬其他歐洲旅行者一樣，輕鬆地穿過了邊境。

He went first to Istanbul, then Malaysia, Singapore and Hong Kong before flying to Frankfurt and then continuing to his native France. Weeks later, it is alleged, Mr Nemmouche crossed another border to brutally murder four visitors to the Jewish Museum of Belgium in Brussels.

他先是去了伊斯坦布爾，然後是馬來西亞、新加坡和香港，然而他乘機前往法蘭克福，最後回到法國老家。數週後，內穆什穿過了另一條邊境，在布魯塞爾的比利時猶太人博物館殘忍地殺害了4名參觀者。

As fears mount of other European jihadis returning from Syria to launch terrorist attacks on home soil, Mr Nemmouche’s travels are weighing heavily on the continent’s security chiefs, who find themselves grappling with one of the EU’s most cherished multilateral projects: the Schengen agreement that facilitates border-free travel.

隨着人們越來越擔憂從敘利亞返回的其他歐洲聖戰分子在本國發動恐怖襲擊，內穆什的行程讓歐洲的安全部門負責人倍感憂慮，因爲他們必須應對歐盟(EU)最爲珍視的多邊項目之一：讓人員跨境自由流動的《申根協定》(Schengen Agreement)。

With more than 3,000 Europeans estimated to be fighting as jihadis in Iraq and Syria, Schengen, the treaty that allows for the free movement of citizens across 26 European states, has become a yawning security loophole. As European security chiefs increasingly admit, they see no easy way to close it.

鑑於估計有3000多歐洲人正作爲聖戰分子在伊拉克和敘利亞作戰，允許歐盟內公民在26個成員國之間自由流動的申根協定變成了一個巨大的安全漏洞。正如歐洲安全部門負責人日趨承認的，他們發現沒有什麼簡單的辦法能夠封堵這個漏洞。

“[Schengen] is the number one concern – the big problem that we are struggling with,” says one top European counter-terrorism chief. “To try to find a way to properly track all of these foreign fighters is already very hard. The lack of information because of Schengen makes it nearly impossible.”

“（申根）是我們最擔憂的事情——是我們正在竭力應對的大問題，”一位歐洲反恐部門的高官說，“嘗試徹底追蹤所有外國戰鬥人員已經很困難了。而申根造成的信息匱乏讓追蹤幾乎不可能完成。”

The free movement of people is one of the EU’s founding principles and it is a matter of enormous pride that border gates are largely left unused.

人員自由流動是歐盟的基本原則之一，邊境閘門基本閒置是一件讓人們極爲自豪的事。

The Schengen agreement prohibits any form of systematic border check other than to validate the authenticity of an individual’s travel documentation. In practice, even systematic checks on documentation are loosely applied: many border guards simply glance at the colour of a passport’s cover.

除了驗證個人旅行證件的真實性以外，申根協定禁止任何形式的系統化邊境檢查。實際操作中，即使是對證件的系統化檢查也很寬鬆：許多邊防人員只不過掃一眼護照封面的顏色而已。

For security Services, that means opportunities to consult international databases of convicted or suspected criminal or terrorists – or even to flag or log concerns about an individual’s suspicious pattern of travel – are missed.

對安全部門來說，這意味着錯過了檢索國際數據庫以追蹤已被定罪或有嫌疑的罪犯或者恐怖分子行蹤、甚至就某人可疑的行程發出警示或進行記錄的機會。

When Mr Nemmouche was arrested six days after his alleged crime it was largely by chance. He was back in Marseille and detained in a routine police check at a railway station that found him carrying a Kalashnikov rifle, a revolver and 330 rounds of ammunition. He was hours away, police said, from a boat ride to north Africa.

內穆什在犯案後6天被逮捕，很大程度上這其實是偶然事件。他回到了馬賽，警方在火車站進行例行檢查時拘留了他，他被發現帶着一支AK-47突擊步槍、一把左輪手槍和330發子彈。警方表示，如果未遭到逮捕，內穆什幾個小時後就會坐上去北非的船。

Thomas de Maiziere, the German interior minister, said last month that Schengen had to be changed to prevent jihadis from crossing borders undetected. “The information that someone is a so-called foreign fighter needs to be more easily recognisable for border authorities,” he said. “We also have to ensure that the relevant group of persons is actually checked.”

德國內政部長托馬斯•德•邁齊埃(Thomas de Maiziere)上月表示，必須改變《申根協定》，以防止聖戰分子在不被發現的情況下過境。“邊防部門需要更易於辨識某人是所謂的外國戰鬥人員，”他表示，“我們還需要確保相關人羣的確接受了檢查。”

But because it is a matter of EU law, outright reform of Schengen could take years to achieve and is be likely to face opposition from those who view the principle of free movement as inviolable. Efforts to increase government data-gathering on citizens have also become politically toxic after the scandal over surveillance by the US National Security Administration.

然而，因爲這牽涉到歐盟法律，對申根協定進行徹底改革或許需要花費數年時間，還可能遭到一些認爲自由流動原則不可侵犯的人的反對。在美國國家安全局(NSA)的監控醜聞爆出後，增加政府收集的公民信息在政治上也成了禁忌話題。

A proposal by the European Commission for a database of air passenger data has been becalmed for two years amid deadlock in the European Parliament.

歐盟委員會(European Commission)曾提出建立航空乘客信息數據庫的方案，但由於歐洲議會(European Parliament)中的僵局，該方案在兩年中毫無進展。

“Sacred calves are going to have to be killed,” says Jytte Klausen, professor of international co-operation at Brandeis University in Massachusetts. “We have open borders, but policing is national. Member states have refused to co-ordinate policing powers.”

“神牛將被殺掉，”馬賽諸塞州布蘭迪斯大學(Brandeis University)研究國際合作的專家於特•克勞森(Jytte Klausen)表示，“我們的邊境是開放的，但警務工作是由國家負責的。成員國拒絕協調警務職權。”

Some political will does exist. Mr de Maiziere and other interior ministers agreed in October to speed up the implementation of a 22-point plan to tackle jihadism. They have also agreed to consider a far more aggressive plan drawn up by an informal group of nine European nations most affected by jihadism.

有關方面的確顯示了一些政治意願。德邁齊埃和其他國家的內政部長在10月達成了協議，加快實施一項22點計劃以對付聖戰主義。他們還同意考慮一項強硬得多的方案，該方案是由9個受聖戰主義影響最嚴重的國家組成的非正式集團制定的。

Foremost among the proposals is a plan to introduce systematic but rapid electronic checks – a step up from current sight-only scrutiny – of travel documentation. Those passing through border controls would have their passports quickly swiped through scanners.

這些方案中最重要的環節是落實對旅行證件進行系統化而快速的電子檢查，這比目前的人工視檢更先進。通過邊防口岸的人員的護照將需要快速地在掃描設備上刷一下。

This, at least, would allow border forces to stop jihadis travelling on cancelled passports. At present, the Schengen information system database can tap into existing Europol and Interpol databases. As growing numbers of European countries, among them Germany, begin to roll out powers to cancel passports for suspected jihadis, such measures may prove effective.

至少，該計劃能讓邊防部門制止聖戰分子使用已吊銷的護照旅行。目前，申根信息系統數據庫能訪問歐洲刑警組織(Europol)和國際刑警組織(Interpol)的數據庫。隨着越來越多的國家（包括德國）開始授權有關部門吊銷疑似聖戰分子的護照，這些舉措可能被證明有效。

A broader database, however, that would include the names of suspects whose passports have not been cancelled, is proving far more difficult.

然而，要想建立一個更大的，包含那些護照未被吊銷的嫌疑分子的數據庫，難度要大得多。

“It’s the old problem of spooks not trusting each other,” says Raffaello Pantucci, director of international security studies at the Royal United Services Institute. “The last thing any security agency wants is for its intelligence to leak out and end up on the web.”

“還是各國情報部門無法相互信任的老問題，” 英國皇家聯合軍種研究院(Royal United Services Institute)的國際安全研究總監拉菲洛•潘圖奇(Raffaello Pantucci)表示，“任何安全部門最不願意看到的事情是情報泄露，在web上曝光。”

They had better overcome such mistrust soon, say security analysts. While the bureaucratic effort to tackle Europe’s jihadi problem looks daunting, carrying out another act of terrorism looks ever more possible – a danger underscored by the recent killing in Ottawa of a Canadian soldier by a suspected Isis sympathiser.

安全分析人士稱，他們最好迅速克服這種不信任。在對付歐洲聖戰問題的官僚努力似乎令人氣餒的同時，發動下一次恐怖主義行動看上去愈發簡單了——最近渥太華的一名加拿大士兵被一個疑似ISIS同情者殺死，就是這種危險的例證。

“The dynamic has changed,” RUSI’s Mr Pantucci notes. “The ‘go time’ for an attack is shorter. These people already have knives in their homes.”

“格局已經變了，”潘圖奇指出，“發動襲擊的準備時間更短了。這些人已經做好了準備。”