📚 A Role-by-Role Guide to Implementing the UK Prevent Duty in Universities | 英国高校反恐预防义务分角色实施指南
Since the Counter-Terrorism and Security Act 2015 came into force, every university in England, Wales and Scotland has had a statutory duty to have "due regard to the need to prevent people from being drawn into terrorism". In practice, that single sentence of legislation fans out into dozens of operational decisions: who approves an external speaker, who notices that a first-year student has stopped attending, who decides whether a concern goes to a Channel panel, and who signs the annual risk assessment. This guide unpacks the Prevent duty role by role, so that governors, academics, professional services staff and students can see exactly what their part of the system looks like.
自《2015 年反恐与安全法》生效以来，英格兰、威尔士和苏格兰的每一所高校都负有法定义务，须"适当考虑防止人们被卷入恐怖主义的需要"。在法律文本中这只是一句话，但在实际运行中，它会分解为几十个具体决策：谁批准校外演讲者？谁注意到某位大一学生突然不再来上课？谁决定某项担忧是否要提交 Channel 小组？谁签署年度风险评估？本文将按角色逐一拆解英国高校的预防义务，让校董、教师、行政人员与学生都能看清自己在整个体系中的位置。
1. What the Prevent Duty Actually Requires | 预防义务的法律实质
Prevent is one of the four strands of the UK counter-terrorism strategy known as CONTEST, alongside Pursue, Protect and Prepare. Its focus is not criminal investigation but safeguarding: reducing the risk that individuals become drawn into terrorism of any kind, including Islamist, extreme right-wing, Northern Ireland-related and other forms of violent extremism. Section 26 of the Counter-Terrorism and Security Act 2015 places the duty on "specified authorities", a list that includes relevant higher education bodies.
预防（Prevent）是英国反恐战略 CONTEST 的四大支柱之一，与追查（Pursue）、保护（Protect）和准备（Prepare）并列。它的重点不是刑事侦查，而是安全保护：降低个人被任何类型恐怖主义卷入的风险，包括伊斯兰极端主义、极右翼、北爱相关以及其他形式的暴力极端主义。《2015 年反恐与安全法》第 26 条将这一义务赋予"特定主管机构"，其中就包括相关高等教育机构。
The critical phrase is "due regard". The duty does not require a university to stop terrorism, nor to hit a quota of referrals, nor to monitor any particular group. It requires the institution to weigh the need to prevent people being drawn into terrorism when carrying out its normal functions, to act proportionately, and to be able to demonstrate that it has done so. Section 31 of the same Act adds an important counterweight: in discharging the duty, universities must have particular regard to freedom of speech within the law and to academic freedom, and must not act in a way that infringes rights under Articles 9, 10 and 11 of the European Convention on Human Rights.
关键词是"适当考虑"（due regard）。这项义务并不要求高校消灭恐怖主义，也不要求达到某种举报数量指标，更不要求监控任何特定群体。它要求高校在履行日常职能时，把"防止人们被卷入恐怖主义"这一需要纳入权衡，采取相称的行动，并且能够证明自己确实这样做了。同一部法律的第 31 条构成了重要的平衡：高校在履行义务时，必须特别顾及法律范围内的言论自由与学术自由，且不得以侵犯《欧洲人权公约》第 9、10、11 条所保护权利的方式行事。
2. The Legal Framework and Who Regulates It | 法律框架与监管主体
The duty applies to relevant higher education bodies in England, Wales and Scotland; it was not commenced in Northern Ireland. Alongside the Act sits statutory guidance issued by the Home Office and the Department for Education, including specific guidance for higher education institutions, which has been updated since it was first published in 2015. Higher education providers are also subject to the Equality Act 2010, the Human Rights Act 1998 and UK GDPR, all of which shape how information about students may be collected and shared.
该义务适用于英格兰、威尔士和苏格兰的相关高等教育机构，但在北爱尔兰尚未生效。除法律本身之外，内政部与教育部还发布了法定指引，其中包括专门面向高校的指引，且该指引自 2015 年首次发布以来已多次更新。高校同时受《2010 年平等法》《1998 年人权法》以及英国数据保护制度约束，这些法律共同决定了学生信息可以如何被收集与共享。
Monitoring differs across the UK. In England, the Office for Students (OfS) oversees compliance through its regulatory framework and annual Prevent monitoring returns, and can in principle apply sanctions ranging from additional conditions of registration to monetary penalties and deregistration. In Wales and Scotland, equivalent funding and regulatory bodies run their own reporting arrangements. Nationally, the Independent Review of Prevent published in 2023 made recommendations that the government accepted, and which continue to shape how the duty is expected to be delivered.
英国各地的监管方式并不相同。在英格兰，学生办公室（OfS）通过其监管框架和年度预防监测申报来监督合规情况，理论上可施加从附加注册条件到罚款乃至撤销注册等一系列处罚。在威尔士和苏格兰，相应的资助与监管机构执行各自的申报安排。在国家级层面，2023 年发布的《预防独立审查》提出了多项建议并获得政府采纳，这些建议持续影响着该项义务的落实方式。
3. Risk Assessment: The Engine Room of Compliance | 风险评估：合规的核心引擎
Everything a university does under Prevent should flow from a documented, annually reviewed risk assessment. This is not a generic template copied from another institution: it must reflect local context, including the local authority's Prevent priorities, recent incidents, campus demographics, the pattern of external speakers, and the presence of high-profile research or events. The assessment should identify risks, rate them, name the person responsible for each mitigation, and set review dates.
高校在预防义务下所做的一切，都应当源自一份有据可查、每年复核的风险评估。它不是从别校照抄的通用模板，而必须反映本地实际：地方政府的预防工作重点、近期发生的事件、校园人口构成、校外演讲者的活动规律，以及是否存在高关注度的研究或活动。评估应当识别风险、评定等级、为每项缓释措施指定责任人，并设定复核日期。
In practice, risk assessments and monitoring frameworks consistently return to a small number of domains: staff training and awareness; welfare and pastoral care; external speakers and events; student societies and on-campus activity; IT provision, acceptable use and filtering; campus security and estates; partnership with local Prevent structures; and the quality of record-keeping and governance oversight. A university that can evidence thoughtful work in these areas is far better placed than one that simply counts training completions.
在实践中，风险评估与监测框架总是围绕少数几个领域展开：教职工培训与意识、福祉与关怀支持、校外演讲者与活动、学生社团与校园活动、信息技术使用与内容过滤、校园安保与物业、与地方预防体系的合作，以及记录与治理监督的质量。能够在这几个领域拿出扎实证据的高校，远比只统计"培训完成率"的高校更站得住脚。
4. Role 1: The Governing Body and Vice-Chancellor | 角色一：校董会与校长
The governing body holds ultimate accountability. Its job is not to run the Prevent programme but to own it: appointing a senior Prevent lead with real authority, approving the annual risk assessment, receiving a substantive annual report, and ensuring that Prevent is embedded in the institution's wider safeguarding architecture rather than bolted on as a compliance exercise. Governors should be willing to ask uncomfortable questions, including whether the duty is being applied in a way that stigmatises particular groups.
校董会承担最终责任。它的任务不是亲自运作预防项目，而是"拥有"它：任命一位拥有实权的高级预防负责人、批准年度风险评估、接收实质性的年度报告，并确保预防工作嵌入学校整体的安全保护体系，而不是作为一项合规任务被外挂在一旁。校董应当愿意提出尖锐问题，包括这项义务的执行是否在事实上污名化了某些群体。
For the Vice-Chancellor and the senior team, the practical deliverables are resource allocation, visible leadership and tone. A short annual statement to staff and students explaining what Prevent is, what it is not, and how concerns are handled does more for trust than a dozen compliance emails. Senior leaders should also ensure alignment between the Prevent lead, the designated safeguarding lead, HR, legal services, the students' union and communications, so that a single incident does not produce five contradictory public messages.
对校长及高层管理团队而言，实际交付物是资源投入、可见的领导力与基调设定。向全体师生发布一份简短的年度说明，讲清预防工作是什么、不是什么、担忧如何被处理，对建立信任的作用胜过十几封合规邮件。高层还应确保预防负责人、安全保护负责人、人力资源、法务、学生会与传播部门之间保持协调，避免同一起事件出现五种互相矛盾的公开说法。
5. Role 2: The Prevent Lead and Safeguarding Team | 角色二：预防负责人与安全保护团队
The Prevent lead is the operational centre of gravity. Typical responsibilities include coordinating the risk assessment, maintaining a single confidential log of concerns and referrals, acting as the bridge to the local authority Prevent coordinator and the police, commissioning and tracking staff training, quality-assuring speaker and event risk assessments, and reporting to the governing body. The role works best when it sits inside safeguarding rather than inside security.
预防负责人是整个运作的重心。其典型职责包括：统筹风险评估、维护一份统一的保密的担忧与转介记录、充当与地方政府预防协调员及警方之间的桥梁、组织并追踪教职工培训、对外部演讲者与活动的风险评估进行质量把关，以及向校董会汇报。这一角色嵌在安全保护体系内，通常比放在安保部门内效果更好。
Two principles govern the day-to-day work. First, proportionality: most concerns are resolved by a conversation, a welfare referral or a pastoral plan, not by an external referral. Second, data minimisation: information is shared on a need-to-know basis, recorded factually, and retained only as long as necessary. The Prevent lead should also be visible and approachable, because a system that only ever appears when something has gone wrong will never receive early, low-level concerns.
日常工作遵循两条原则。第一是相称性：大多数担忧通过一次谈话、一次福祉转介或一份关怀计划即可解决，而非外部转介。第二是数据最小化：信息按"需要知情"原则共享，客观记录，且只在必要期限内保留。预防负责人同样应当保持可见与可接近，因为一个只在出事时才出现的体系，永远收不到早期、轻微的担忧信号。
6. Role 3: Academic Staff, Personal Tutors and Supervisors | 角色三：学术教师、个人导师与导师
Academic staff are not expected to be counter-terrorism experts, to investigate, or to judge whether someone is "radicalised". Their role is narrower and more realistic: to notice meaningful changes and pass them on through the correct route. Patterns that may warrant a conversation include withdrawal from study or social life, sudden changes in expressed views, fixation on a grievance or a violent cause, accessing or sharing prohibited material, or a combination of personal crisis with exposure to extremist narratives.
学术教师不必成为反恐专家，不需要自行调查，也不必判断某人是否已经"被激进化"。他们的角色更为有限也更为现实：注意到有意义的变化，并通过正确渠道上报。值得开启一次谈话的信号包括：退出学习或社交生活、表达的观点突然变化、对某种怨恨或暴力事业的执念、接触或传播被禁止的材料，或者个人危机与极端主义叙事接触同时出现。
Two cautions matter. First, do not profile by religion, ethnicity, nationality or political identity; the same behaviour in two different students should trigger the same response. Second, protect the classroom. Discussing terrorism, extremism, conflict or controversial political ideas in a seminar is legitimate academic activity, and the duty must never be used to shut down rigorous debate. Staff should record what they observed in neutral, factual language and route it to the Prevent lead or safeguarding team, keeping the student informed wherever it is safe to do so.
有两点需要特别注意。第一，不要依据宗教、族裔、国籍或政治身份进行画像；同一行为出现在两名不同学生身上，应当触发同样的反应。第二，保护课堂。在研讨课上讨论恐怖主义、极端主义、冲突或有争议的政治观点，属于正当的学术活动，这项义务绝不能被用来扼杀严谨的辩论。教职工应以中性、客观的语言记录所见，并转交预防负责人或安全保护团队，在安全的前提下尽量告知学生本人。
7. Role 4: Student Services, Wellbeing and Counselling | 角色四：学生服务、福祉与心理咨询
Student services staff are often best placed to see the whole picture. A student who is being drawn towards extremist material may also be experiencing isolation, financial pressure, family breakdown, discrimination, substance misuse or a mental health difficulty. This does not mean that radicalisation is a mental illness, and conflating the two is both inaccurate and harmful. It does mean that the support response should be holistic and that counselling services should never be treated as a surveillance channel.
学生服务人员往往最能看清全貌。一名正被极端主义材料吸引的学生，可能同时正经历孤立、经济压力、家庭破裂、遭受歧视、药物滥用或心理健康困难。这并不意味着激进化是一种精神疾病，把两者混为一谈既不准确也有害。它的真正含义是：支持方案应当是整体性的，而且心理咨询服务绝不能被当作监控渠道。
Practically, this role involves maintaining clear confidentiality boundaries and explaining them to students in advance; making warm, consented referrals to wellbeing services and, where appropriate, to external support; and being
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