圣战分子钻申根协定空子

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.

当法籍圣战分子迈赫迪•内穆什(Mehdi Nemmouche)今年3月从叙利亚战场回家时，他和数百万其他欧洲旅行者一样，轻松地穿过了边境。

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尔，然后是马来西亚、新加坡和香港，然而他乘机前往法兰克福，最后回到法国老家。数周后，内穆什穿过了另一条边境，在布鲁塞尔的比利时犹太人博物馆残忍地杀害了4名参观者。

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.

随着人们越来越担忧从叙利亚返回的其他欧洲圣战分子在本国发动恐怖袭击，内穆什的行程让欧洲的安全部门负责人倍感忧虑，因为他们必须应对欧盟(EU)最为珍视的多边项目之一：让人员跨境自由流动的《申根协定》(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.

鉴于估计有3000多欧洲人正作为圣战分子在伊拉克和叙利亚作战，允许欧盟内公民在26个成员国之间自由流动的申根协定变成了一个巨大的安全漏洞。正如欧洲安全部门负责人日趋承认的，他们发现没有什么简单的办法能够封堵这个漏洞。

“[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）是我们最担忧的事情——是我们正在竭力应对的大问题，”一位欧洲反恐部门的高官说，“尝试彻底追踪所有外国战斗人员已经很困难了。而申根造成的信息匮乏让追踪几乎不可能完成。”

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.

人员自由流动是欧盟的基本原则之一，边境闸门基本闲置是一件让人们极为自豪的事。

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.

除了验证个人旅行证件的真实性以外，申根协定禁止任何形式的系统化边境检查。实际操作中，即使是对证件的系统化检查也很宽松：许多边防人员只不过扫一眼护照封面的颜色而已。

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.

对安全部门来说，这意味着错过了检索国际数据库以追踪已被定罪或有嫌疑的罪犯或者恐怖分子行踪、甚至就某人可疑的行程发出警示或进行记录的机会。

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.

内穆什在犯案后6天被逮捕，很大程度上这其实是偶然事件。他回到了马赛，警方在火车站进行例行检查时拘留了他，他被发现带着一支AK-47突击步枪、一把左轮手枪和330发子弹。警方表示，如果未遭到逮捕，内穆什几个小时后就会坐上去北非的船。

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.”

德国内政部长托马斯•德•迈齐埃(Thomas de Maiziere)上月表示，必须改变《申根协定》，以防止圣战分子在不被发现的情况下过境。“边防部门需要更易于辨识某人是所谓的外国战斗人员，”他表示，“我们还需要确保相关人群的确接受了检查。”

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，因为这牵涉到欧盟法律，对申根协定进行彻底改革或许需要花费数年时间，还可能遭到一些认为自由流动原则不可侵犯的人的反对。在美国国家安全局(NSA)的监控丑闻爆出后，增加政府收集的公民信息在政治上也成了禁忌话题。

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.

欧盟委员会(European Commission)曾提出建立航空乘客信息数据库的方案，但由于欧洲议会(European Parliament)中的僵局，该方案在两年中毫无进展。

“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.”

“神牛将被杀掉，”马赛诸塞州布兰迪斯大学(Brandeis University)研究国际合作的专家于特•克劳森(Jytte Klausen)表示，“我们的边境是开放的，但警务工作是由国家负责的。成员国拒绝协调警务职权。”

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.

有关方面的确显示了一些政治意愿。德迈齐埃和其他国家的内政部长在10月达成了协议，加快实施一项22点计划以对付圣战主义。他们还同意考虑一项强硬得多的方案，该方案是由9个受圣战主义影响最严重的国家组成的非正式集团制定的。

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.

这些方案中最重要的环节是落实对旅行证件进行系统化而快速的电子检查，这比目前的人工视检更先进。通过边防口岸的人员的护照将需要快速地在扫描设备上刷一下。

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，该计划能让边防部门制止圣战分子使用已吊销的护照旅行。目前，申根信息系统数据库能访问欧洲刑警组织(Europol)和国际刑警组织(Interpol)的数据库。随着越来越多的国家（包括德国）开始授权有关部门吊销疑似圣战分子的护照，这些举措可能被证明有效。

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

然而，要想建立一个更大的，包含那些护照未被吊销的嫌疑分子的数据库，难度要大得多。

“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.”

“还是各国情报部门无法相互信任的老问题，” 英国皇家联合军种研究院(Royal United Services Institute)的国际安全研究总监拉菲洛•潘图奇(Raffaello Pantucci)表示，“任何安全部门最不愿意看到的事情是情报泄露，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.

安全分析人士称，他们最好迅速克服这种不信任。在对付欧洲圣战问题的官僚努力似乎令人气馁的同时，发动下一次恐怖主义行动看上去愈发简单了——最近渥太华的一名加拿大士兵被一个疑似ISIS同情者杀死，就是这种危险的例证。

“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.”

“格局已经变了，”潘图奇指出，“发动袭击的准备时间更短了。这些人已经做好了准备。”