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觀察《世界文化多樣性宣言》* |
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施正鋒 淡江大學公共行政學系暨公共政策研究所教授 |
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聯合國對於文化多樣性的關懷 在過去，「文化多樣性」（cultural diversity）往往會被當作木馬屠城的工具，也就是對於少數族群帶著懷疑的態度，因此，各國為了先發制人，不免以軟硬兼施的方式來實行同化政策，希冀以文化差異的消弭來達到消滅少數族群認同的目的。從1980年代起，隨著冷戰期間的意識形態之爭逐漸消退，族群之間的齟齬漸次浮現，過去威權時代的文化打壓記憶匯為反彈、甚至於衝突的根源，大家才開始認真思考「多元文化主義」（multiculturalism）的價值；特別是在1990年代起，由於全球化的加速擴張，國際上對於文化多樣性的保障不敢繼續忽視。 國際法對於文化權的揭示，可以溯及1948年通過『世界人權宣言』（Universal Declaration of Human Rights）的第27條（見附錄一），以及1966通過『國際經濟、社會、暨文化權規約』（International Covenant on Economic, Social and Cultural Rights）的第13、15（見附錄二）。 聯合國教科文組織（United Nations Educational, Science and Cultural Organization、簡稱UNESCO）的185個會員國於2001年通過的『世界文化多樣性宣言』（Universal Declaration on Cultural Diversity，見附錄三），除了重申對於對於文化權的保障以外，還強調文化是認同、社會凝聚力、以及知識經濟的基礎，並希望能透過國際合作，讓現有的文化多樣性能獲得保存，並進一步能推動文化的創造力。UNESCO理事長（director-general）Koïchiro Matsuura除了駁斥文化／文明衝突論，認為文化之間的對話才是和平的最佳保障。
『世界文化多樣性宣言』 『世界文化多樣性宣言』揭櫫著四項大原則，而每個大原則下面各有三個條文，我們簡述如下： （一）認同、多樣性、及多元主義 第1條：文化多樣性是人類的共同資產──文化的多元形式跨越時空；這種多樣性深植於於人類的多元認同；文化多樣性對於人類的重要性有如生物多樣性之於自然；文化多樣性是人類的共同資產。 第2條：由文化多樣性到文化多元主義──在日趨多元的社會中，必須確保具有多元文化認同的人們如何從事和諧的互動；「文化文化多元主義」（cultural pluralism）是指如何包容所有公民的參與，以便達到社會凝聚、公民社會的活力、以及和平。 第3條：文化多樣性是發展的要素之一──文化多樣性不只是經濟發展的根基，更是人們取得知識、感情、以及精神滿足感的一種途徑。
（二）文化多樣性及人權 第4條：以人權來保障文化多樣性──對於文化多樣性的捍衛有道德上的必要性、與人類尊嚴的尊敬不可分離；這表示對於人權以及基本自由的尊重，特別是少數族群（minorities）、以及原住民族（indigenous peoples）。 第5條：以文化權來促進文化多樣性──文化權是普世人權的一部分、不可切割；蓬勃的創意多樣性取決於文化權的充分保障；每個人有權選擇表達自我、創作、以及傳播的語言，特別是自己的母語；教育及訓練必須十足尊重每個人的文化認同。 第6條：促進文化多樣性的接觸──為了確保文化多樣性，必須有表達的自由、媒體多元、多語政策（multilingualism）、公平的藝術及科技知識管道、以及表達及傳播文化的方式。
（三）文化多樣性及創造性 第7條：文化資產是創造力的源泉──文化的創新根源於傳統，不過，文化的茂盛則來自於與其他文化的接觸；文化資產必須加以保存、改進、以及傳遞，以便促進文化多樣性的創新、以及鼓勵問話之間的真正對話。 第8條：文化財及服務──注意創意作品供給的多樣性；承認作者及作家的權利；文化財及服務有其特殊性，不能單純視為商品、或是消費財。 第9條：以文化政策做為創造力的觸媒──各國的文化政策必須有利於作品的自由流通，特別是透過文化產業，提供有利於生產及傳播文化財的條件。
（四）文化多樣性及國際團結 第10條：強化創造及傳播的能力──有鑒於全球文化財流通的失衡，各國必須強化彼此的合作，以發展具有活力、競爭力的文化產業，特別是開發中、轉型中的國家。 第11條：建構公共部門、私人部門、及公民社會的夥伴關係──文化多樣性的保存及推廣是人類永續發展之鑰，不過，並不能光是靠市場的力量來獲得保障，因此，政府的文化政策必須強調與私人部門、及公民社會建立夥伴關係。 第12條：聯合國教科文組織的角色──除了做為論壇以外，將督促國際組織將上述原則納為發展策略的考量，從事建立標準、提高意識、以及培植能力的工作，並且推動行動方案的執行。
（五）行動方案──包括下列具體目標： 1. 深化國際間對於文化多樣性的辯論。 2. 推動相關原則、標準、以及措施的定義。 3. 促進文化多元主義相關知識及措施的交流。 4. 進一步了解文化權作為人權的內涵。 5. 保障人類的語言資產，儘可能用各種語言進行表達、創作、及傳播。 6. 鼓勵各國在各級教育的語言多樣性；在可能的範圍下，儘早學習多種語言。 7. 透過教育來體會文化多樣性的價值，特別是教材及師資培育的充實。 8. 設法將傳統教學納入教育過程。 9. 鼓勵數位學習，以確保新資訊傳播科技的嫻熟。 10. 推動網際空間的語言多樣性。 11. 矯正數位落差。 12. 透過公共電台，以確保媒體內容、及資訊網絡的多元化。 13. 鼓勵文化資產的保存及創新。 14. 尊重及保障傳統知識。 15. 推動創作者、藝術家、研究人員、科學家、以及知識份子的流動性。 16. 保障智慧財產權。 17. 協助開發中、即轉型中國家發展文化產業。 18. 督促各國文化政策中納入本宣言的原則。 19. 鼓勵公民社會參與文化政策的制定。 20. 鼓勵私人部門與公共部門對話。
相關規約的推動 由於『世界文化多樣性宣言』只有宣示性、並無約束力，此外，會員國也認為該宣言尚不足因應全球化所帶來對於文化多樣性的威脅，特別是開法中國家、或是國家內部的少數族群，因此，聯合國教科文組織覺得有必要將此宣言法制化，因此，正在草擬一個的相關規約，稱為『保護文化內容多樣性暨藝術表達公約』（Convention on the Protection of the Diversity of Cultural Contents and Artistic Expressions）。UNESCO大會要求理事長Koïchiro Matsuura在2005年10月對此提出初步報告、以及規約的草案；理事長任命了一個由15名各國專家組成的小組，經過三次會議（2003-2004），已經提出規約草案，接下來將是冗長的國際協商過程。 除了UNESCO，歐盟、歐洲理事會、以及八大工業國家（G-8）也相當關心文化多樣性的保存。「國際文化政策網絡」（International Network for Cultural Policy、簡稱INCP）是由各國文化相關部會首長組成的非正式組織，主要功能在作資訊交換的平台、以及政策對話的論壇，總部設於加拿大。另外，「國際文化多樣性網絡」（International Network for Cultural Diversity、簡稱INCD）是由300多個團體結合的國際非政府組織，會員包括40多國，秘書處設於加拿大。
可能參與的方向 What：我們必須先確定著眼包山包海的文化多樣性／文化資產、或是較為專注的少數族群文化／語言。 Where：我們要決定將參與的目標直接訂在國際政府際組織（intergovernmental organizations、IGOs）、或是國際性非政府組織（international non-governmental organizations、INGOs）；前者包括UNESCO，後者包括INCD，而INCP的資格有待進一步確認。 Who：我們必須思考，究竟是要直接由國家派官員出席、還是鼓勵國內非政府組織（現有、或是新成立）加入、或是先由學者來攻堅。 By Whom：我們需要衡量，究竟是要由國人自己來參與，還是想辦法拜託邦交國（尤其是中美洲友邦）、或是友好國家牽線，在相關組織於該國進行全球性／區域性會議之際，邀請我國前往觀察。 How：為了表示我們對於『世界文化多樣性宣言』的認同，我們可以考慮是否片面將草擬中的規約國內法化，譬如通過單一的『文化多樣性保護法』、或是將條文散佈相關法規、甚至於在新憲法裡頭作象徵性的文字宣示。
附錄一：『世界人權宣言』（1948） Universal Declaration of Human Rights Article 27(1) Everyone has the right freely to participate in the cultural life of the community, to enjoy the arts and to share in scientific advancement and its benefits. (2) Everyone has the right to the protection of the moral and material interests resulting from any scientific, literary or artistic production of which he is the author.
附錄二：『國際經濟、社會、暨文化權規約』（1966） International Covenant on Economic, Social and Cultural Rights Article 13 1. The States Parties to the present Covenant recognize the right of everyone to education. They agree that education shall be directed to the full development of the human personality and the sense of its dignity, and shall strengthen the respect for human rights and fundamental freedoms. They further agree that education shall enable all persons to participate effectively in a free society, promote understanding, tolerance and friendship among all nations and all racial, ethnic or religious groups, and further the activities of the United Nations for the maintenance of peace. 2. The States Parties to the present Covenant recognize that, with a view to achieving the full realization of this right: (a) Primary education shall be compulsory and available free to all; (b) Secondary education in its different forms, including technical and vocational secondary education, shall be made generally available and accessible to all by every appropriate means, and in particular by the progressive introduction of free education; (c) Higher education shall be made equally accessible to all, on the basis of capacity, by every appropriate means, and in particular by the progressive introduction of free education; (d) Fundamental education shall be encouraged or intensified as far as possible for those persons who have not received or completed the whole period of their primary education; (e) The development of a system of schools at all levels shall be actively pursued, an adequate fellowship system shall be established, and the material conditions of teaching staff shall be continuously improved. 3. The States Parties to the present Covenant undertake to have respect for the liberty of parents and, when applicable, legal guardians to choose for their children schools, other than those established by the public authorities, which conform to such minimum educational standards as may be laid down or approved by the State and to ensure the religious and moral education of their children in conformity with their own convictions. 4. No part of this article shall be construed so as to interfere with the liberty of individuals and bodies to establish and direct educational institutions, subject always to the observance of the principles set forth in paragraph I of this article and to the requirement that the education given in such institutions shall conform to such minimum standards as may be laid down by the State. Article 15 1. The States Parties to the present Covenant recognize the right of everyone: (a) To take part in cultural life; (b) To enjoy the benefits of scientific progress and its applications; (c) To benefit from the protection of the moral and material interests resulting from any scientific, literary or artistic production of which he is the author. 2. The steps to be taken by the States Parties to the present Covenant to achieve the full realization of this right shall include those necessary for the conservation, the development and the diffusion of science and culture. 3. The States Parties to the present Covenant undertake to respect the freedom indispensable for scientific research and creative activity. 4. The States Parties to the present Covenant recognize the benefits to be derived from the encouragement and development of international contacts and co-operation in the scientific and cultural fields.
附錄三：『世界文化多樣性宣言』（2001） UNESCO Universal Declaration on Cultural Diversity
"The General Conference, Committed to the full implementation of the human rights and fundamental freedoms proclaimed in the Universal Declaration of Human Rights and other universally recognized legal instruments, such as the two International Covenants of 1966 relating respectively to civil and political rights and to economic, social and cultural rights, Recalling that the Preamble to the Constitution of UNESCO affirms "that the wide diffusion of culture, and the education of humanity for justice and liberty and peace are indispensable to the dignity of man and constitute a sacred duty which all the nations must fulfil in a spirit of mutual assistance and concern", Further recalling Article I of the Constitution, which assigns to UNESCO among other purposes that of recommending "such international agreements as may be necessary to promote the free flow of ideas by word and image", Referring to the provisions relating to cultural diversity and the exercise of cultural rights in the international instruments enacted by UNESCO, Reaffirming that culture should be regarded as the set of distinctive spiritual, material, intellectual and emotional features of society or a social group, and that it encompasses, in addition to art and literature, lifestyles, ways of living together, value systems, traditions and beliefs, Noting that culture is at the heart of contemporary debates about identity, social cohesion, and the development of a knowledge-based economy, Affirming that respect for the diversity of cultures, tolerance, dialogue and cooperation, in a climate of mutual trust and understanding are among the best guarantees of international peace and security, Aspiring to greater solidarity on the basis of recognition of cultural diversity, of awareness of the unity of humankind, and of the development of intercultural exchanges, Considering that the process of globalization, facilitated by the rapid development of new information and communication technologies, though representing a challenge for cultural diversity, creates the conditions for renewed dialogue among cultures and civilizations, Aware of the specific mandate which has been entrusted to UNESCO, within the United Nations system, to ensure the preservation and promotion of the fruitful diversity of cultures, Proclaims the following principles and adopts the present Declaration:
IDENTITY, DIVERSITY AND PLURALISMArticle 1 Cultural diversity: the common heritage of humanityCulture takes diverse forms across time and space. This diversity is embodied in the uniqueness and plurality of the identities of the groups and societies making up humankind. As a source of exchange, innovation and creativity, cultural diversity is as necessary for humankind as biodiversity is for nature. In this sense, it is the common heritage of humanity and should be recognized and affirmed for the benefit of present and future generations. Article 2 From cultural diversity to cultural pluralismIn our increasingly diverse societies, it is essential to ensure harmonious interaction among people and groups with plural, varied and dynamic cultural identities as well as their willingness to live together. Policies for the inclusion and participation of all citizens are guarantees of social cohesion, the vitality of civil society and peace. Thus defined, cultural pluralism gives policy expression to the reality of cultural diversity. Indissociable from a democratic framework, cultural pluralism is conducive to cultural exchange and to the flourishing of creative capacities that sustain public life. Article 3 Cultural diversity as a factor in developmentCultural diversity widens the range of options open to everyone; it is one of the roots of development, understood not simply in terms of economic growth, but also as a means to achieve a more satisfactory intellectual, emotional, moral and spiritual existence. CULTURAL DIVERSITY AND HUMAN RIGHTSArticle 4 Human rights as guarantees of cultural diversityThe defence of cultural diversity is an ethical imperative, inseparable from respect for human dignity. It implies a commitment to human rights and fundamental freedoms, in particular the rights of persons belonging to minorities and those of indigenous peoples. No one may invoke cultural diversity to infringe upon human rights guaranteed by international law, nor to limit their scope. Article 5 Cultural rights as an enabling environment for cultural diversityCultural rights are an integral part of human rights, which are universal, indivisible and interdependent. The flourishing of creative diversity requires the full implementation of cultural rights as defined in Article 27 of the Universal Declaration of Human Rights and in Articles 13 and 15 of the International Covenant on Economic, Social and Cultural Rights. All persons have therefore the right to express themselves and to create and disseminate their work in the language of their choice, and particularly in their mother tongue; all persons are entitled to quality education and training that fully respect their cultural identity; and all persons have the right to participate in the cultural life of their choice and conduct their own cultural practices, subject to respect for human rights and fundamental freedoms. Article 6 Towards access for all to cultural diversityWhile ensuring the free flow of ideas by word and image care should be exercised that all cultures can express themselves and make themselves known. Freedom of expression, media pluralism, multilingualism, equal access to art and to scientific and technological knowledge, including in digital form, and the possibility for all cultures to have access to the means of expression and dissemination are the guarantees of cultural diversity. CULTURAL DIVERSITY AND CREATIVITYArticle 7 Cultural heritage as the wellspring of creativityCreation draws on the roots of cultural tradition, but flourishes in contact with other cultures. For this reason, heritage in all its forms must be preserved, enhanced and handed on to future generations as a record of human experience and aspirations, so as to foster creativity in all its diversity and to inspire genuine dialogue among cultures. Article 8 Cultural goods and services: commodities of a unique kindIn the face of present-day economic and technological change, opening up vast prospects for creation and innovation, particular attention must be paid to the diversity of the supply of creative work, to due recognition of the rights of authors and artists and to the specificity of cultural goods and services which, as vectors of identity, values and meaning, must not be treated as mere commodities or consumer goods. Article 9 Cultural policies as catalysts of creativityWhile ensuring the free circulation of ideas and works, cultural policies must create conditions conducive to the production and dissemination of diversified cultural goods and services through cultural industries that have the means to assert themselves at the local and global level. It is for each State, with due regard to its international obligations, to define its cultural policy and to implement it through the means it considers fit, whether by operational support or appropriate regulations. CULTURAL DIVERSITY AND INTERNATIONAL SOLIDARITYArticle 10 Strengthening capacities for creation and dissemination worldwideIn the face of current imbalances in flows and exchanges of cultural goods and services at the global level, it is necessary to reinforce international cooperation and solidarity aimed at enabling all countries, especially developing countries and countries in transition, to establish cultural industries that are viable and competitive at national and international level. Article 11 Building partnerships between the public sector, the private sector and civil society Market forces alone cannot guarantee the preservation and promotion of cultural diversity, which is the key to sustainable human development. From this perspective, the pre-eminence of public policy, in partnership with the private sector and civil society, must be reaffirmed. Article 12 The role of UNESCOUNESCO, by virtue of its mandate and functions, has the responsibility to: (a) Promote the incorporation of the principles set out in the present Declaration into the development strategies drawn up within the various intergovernmental bodies; (b) Serve as a reference point and a forum where States, international governmental and non-governmental organizations, civil society and the private sector may join together in elaborating concepts, objectives and policies in favour of cultural diversity; (c) Pursue its activities in standard-setting, awareness-raising and capacity-building in the areas related to the present Declaration within its fields of competence; (d) Facilitate the implementation of the Action Plan, the main lines of which are appended to the present Declaration.
MAIN LINES OF AN ACTION PLAN FOR THE IMPLEMENTATION OF THE UNESCO UNIVERSAL DECLARATION ON CULTURAL DIVERSITY The Member States commit themselves to taking appropriate steps to disseminate widely the "UNESCO Universal Declaration on Cultural Diversity", in particular by cooperating with a view to achieving the following objectives: 1. Deepening the international debate on questions relating to cultural diversity, particularly in respect of its links with development and its impact on policy-making, at both national and international level; taking forward notably consideration of the opportunity of an international legal instrument on cultural diversity. 2. Advancing in the definition of principles, standards and practices, on both the national and the international levels, as well as of awareness-raising modalities and patterns of cooperation, that are most conducive to the safeguarding and promotion of cultural diversity. 3. Fostering the exchange of knowledge and best practices in regard to cultural pluralism with a view to facilitating, in diversified societies, the inclusion and participation of persons and groups from varied cultural backgrounds. 4. Making further headway in understanding and clarifying the content of cultural rights as an integral part of human rights. 5. Safeguarding the linguistic heritage of humanity and giving support to expression, creation and dissemination in the greatest possible number of languages. 6. Encouraging linguistic diversity while respecting the mother tongue ?at all levels of education, wherever possible, and fostering the learning of several languages from the youngest age. 7. Promoting through education an awareness of the positive value of cultural diversity and improving to this end both curriculum design and teacher education. 8. Incorporating, where appropriate, traditional pedagogies into the education process with a view to preserving and making full use of culturally appropriate methods of communication and transmission of knowledge. 9. Encouraging "digital literacy" and ensuring greater mastery of the new information and communication technologies, which should be seen both as educational discipline and as pedagogical tools capable of enhancing the effectiveness of educational services. 10. Promoting linguistic diversity in cyberspace and encouraging universal access through the global network to all information in the public domain. 11. Countering the digital divide, in close cooperation in relevant United Nations system organizations, by fostering access by the developing countries to the new technologies, by helping them to master information technologies and by facilitating the digital dissemination of endogenous cultural products and access by those countries to the educational, cultural and scientific digital resources available worldwide. 12. Encouraging the production, safeguarding and dissemination of diversified contents in the media and global information networks and, to that end, promoting the role of public radio and television services in the development of audiovisual productions of good quality, in particular by fostering the establishment of cooperative mechanisms to facilitate their distribution. 13. Formulating policies and strategies for the preservation and enhancement of the cultural and natural heritage, notably the oral and intangible cultural heritage, and combating illicit traffic in cultural goods and services. 14. Respecting and protecting traditional knowledge, in particular that of indigenous peoples; recognizing the contribution of traditional knowledge, particularly with regard to environmental protection and the management of natural resources, and fostering synergies between modern science and local knowledge. 15. Fostering the mobility of creators, artists, researchers, scientists and intellectuals and the development of international research programmes and partnerships, while striving to preserve and enhance the creative capacity of developing countries and countries in transition. 16. Ensuring protection of copyright and related rights in the interest of the development of contemporary creativity and fair remuneration for creative work, while at the same time upholding a public right of access to culture, in accordance with Article 27 of the Universal Declaration of Human Rights. 17. Assisting in the emergence or consolidation of cultural industries in the developing countries and countries in transition and, to this end, cooperating in the development of the necessary infrastructures and skills, fostering the emergence of viable local markets, and facilitating access for the cultural products of those countries to the global market and international distribution networks. 18. Developing cultural policies, including operational support arrangements and/or appropriate regulatory frameworks, designed to promote the principles enshrined in this Declaration, in accordance with the international obligations incumbent upon each State. 19. Involving civil society closely in framing of public policies aimed at safeguarding and promoting cultural diversity. 20. Recognizing and encouraging the contribution that the private sector can make to enhancing cultural diversity and facilitating to that end the establishment of forums for dialogue between the public sector and the private sector. - - - - - - - - - - - - - - - - - - - - - - - - - - - |