📚 Prevent Duty: How Educational Institutions Fulfil Their Statutory Anti-Extremism Obligations | Prevent 职责：教育机构如何履行反极端化的法定义务
Since 2015, schools, colleges and universities in the United Kingdom have been legally required to have “due regard to the need to prevent people from being drawn into terrorism”. This is the Prevent duty, and it is one of the most frequently examined, most frequently misunderstood and most heavily contested legal obligations in the entire education sector. This article unpacks what the duty actually says, how institutions translate it into policy and practice, and where the genuine legal and ethical tensions lie.
自 2015 年起，英国的中小学、继续教育学院与大学在法律上都必须”适当顾及防止他人被卷入恐怖主义的需要”。这就是 Prevent 职责，也是整个教育领域中最常被考查、最常被误解、争议也最激烈的法律义务之一。本文将拆解这条义务究竟规定了什么、院校如何把它转化为政策与实践，以及真正的法律与伦理张力存在于何处。
1. What the Prevent Duty Is – and What It Is Not | 什么是 Prevent 职责——以及它不是什么
Prevent is one of the four pillars of CONTEST, the United Kingdom’s counter-terrorism strategy. Its purpose is to stop people becoming terrorists or supporting terrorism, primarily through early intervention and safeguarding rather than through policing or prosecution. It is deliberately positioned as a preventive, welfare-oriented strand of counter-terrorism work.
Prevent 是英国反恐战略 CONTEST 的四大支柱之一，其目标是通过早期干预与保护性措施，阻止人们成为恐怖分子或支持恐怖主义，而不是主要依靠警务或起诉。它被有意定位为反恐工作中预防性的、以福利与保护为取向的一环。
The Prevent duty is not, however, a duty to spy on students or to report every unusual opinion. It is a duty of “due regard”, which means institutions must weigh the need to prevent radicalisation alongside their other legal duties, including freedom of expression, academic freedom, religious freedom and the public sector equality duty. Due regard is a procedural obligation: it requires evidence, reasoning and balance, not a predetermined outcome.
但 Prevent 职责并不是要求院校秘密监视学生，也不是要求举报每一个不寻常的观点。它是”适当顾及”的义务，意味着院校必须把防止激进化这一需要，与言论自由、学术自由、宗教自由以及公共部门平等义务等其他法律义务一并权衡。”适当顾及”是一种程序性义务：它要求证据、论证与平衡，而不预设某个结果。
Duty = due regard, not a duty to report every concern
2. The Legal Framework: CTSA 2015, Section 26 | 法律框架：《2015 年反恐与安全法》第 26 条
The duty is created by section 26 of the Counter-Terrorism and Security Act 2015 (CTSA 2015). It applies to the “specified authorities” listed in Schedule 6 of that Act, which include the proprietors of maintained schools, independent schools, registered childcare providers, further education institutions, higher education providers and local authorities. Section 29 requires specified authorities to have regard to the government’s Prevent strategy, and section 30 permits the Secretary of State to issue statutory guidance and to monitor compliance.
该职责由《2015 年反恐与安全法》（CTSA 2015）第 26 条创设，适用于该法附表 6 所列的”特定主管机构”，包括公立学校与独立学校的办学主体、注册托育机构、继续教育机构、高等教育机构以及地方政府。第 29 条要求特定主管机构顾及政府的 Prevent 战略，第 30 条则授权国务大臣发布法定指引并监督合规情况。
| Specified authority | 特定主管机构 | Key statutory guidance | 主要法定指引 | Main monitoring body | 主要监督机构 |
| Schools, academies, independent schools | Prevent Duty Guidance (2023); KCSIE; Working Together to Safeguard Children | Ofsted, ISI, DfE |
| Further education colleges | Prevent Duty Guidance (2023), FE annex | Ofsted |
| Higher education providers | Prevent Duty Guidance (2023), HE annex | Office for Students (OfS) |
| Local authorities | Prevent Duty Guidance (2023); Channel guidance | Home Office, DfE |
Britain’s approach differs from some continental European models because the duty sits inside an existing safeguarding architecture. A Prevent concern is treated in law and in practice as a safeguarding concern, handled alongside child protection, mental health support and anti-bullying work rather than as a separate security function.
英国模式与部分欧洲大陆模式的区别在于：该职责被嵌入既有的保护性架构之中。在法律制度与实务操作中，Prevent 关切被当作保护性（safeguarding）关切处理，与儿童保护、心理健康支持与反霸凌工作并列，而非作为独立的安全职能。
3. Key Definitions and the CONTEST Strategy | 核心定义与 CONTEST 战略
Accurate compliance depends on accurate definitions. Terrorism is defined in section 1 of the Terrorism Act 2000 as the use or threat of action designed to influence a government or intimidate the public, made for the purpose of advancing a political, religious, racial or ideological cause. Extremism, following the government’s revised definition, is the promotion or advancement of an ideology based on violence, hatred or intolerance that aims to negate or destroy the fundamental rights and freedoms of others, or to undermine, overturn or replace the United Kingdom’s liberal parliamentary democracy, or to create a permissive environment for others to do so.
准确的合规取决于准确的定义。根据《2000 年反恐法》第 1 条，恐怖主义是指为推进某种政治、宗教、种族或意识形态目的，而设计用以影响政府或恐吓公众的行动之使用或威胁。至于极端主义，依照政府修订后的定义，是指宣扬或推进建立在暴力、仇恨或不容忍之上的意识形态，目的在于否定或摧毁他人的基本权利与自由，或削弱、推翻、取代英国的自由议会民主制，或为他人实现上述目标创造纵容性环境。
Radicalisation is the process by which a person comes to support terrorism and forms of extremism that lead to terrorism. CONTEST itself has four pillars: Pursue (detect and disrupt), Prevent (stop people becoming terrorists or supporting terrorism), Protect (strengthen defences against attack) and Prepare (mitigate the impact of an attack). Prevent, therefore, is only one quarter of the picture, and it depends on Pursue to supply intelligence and on Protect to secure physical environments.
激进化（radicalisation）指的是一个人逐渐支持恐怖主义以及通向恐怖主义的极端主义形式的过程。CONTEST 本身包含四大支柱：Pursue（侦查与阻断）、Prevent（阻止人们成为恐怖分子或支持恐怖主义）、Protect（强化防范攻击的能力）与 Prepare（减轻攻击造成的影响）。因此，Prevent 只是整体图景的四分之一，它依赖 Pursue 提供情报，也依赖 Protect 保障实体环境安全。
CONTEST = Pursue + Prevent + Protect + Prepare
4. Risk Assessment and Partnership Working | 风险评估与合作机制
The first practical step for any institution is a written risk assessment. This should identify the local risk picture, the institution’s own vulnerabilities, and the proportionate mitigations available. Effective risk assessments draw on the local authority Prevent coordinator, the police Prevent team, the regional Counter-Terrorism Unit and local community partners, because risk is contextual rather than generic.
任何院校的第一个实务步骤都是书面的风险评估。评估应当识别本地风险图景、院校自身的脆弱点，以及可采取的、与风险相称的缓解措施。有效的风险评估会借助地方政府的 Prevent 协调员、警方 Prevent 团队、区域反恐单位以及本地社区伙伴，因为风险是情境性的，而非泛化的。
A useful analytical tool is the vulnerability-versus-risk distinction. A student may hold an unpopular or provocative view without presenting a risk of committing terrorism; conversely, a person may present serious risk without holding an obviously “extreme” opinion. Compliance therefore requires professional judgement, not a checklist of banned ideas.
一个有用的分析工具是区分”脆弱性”与”风险”。一名学生可能持有不受欢迎或挑衅性的观点，却并不存在实施恐怖主义的风险；反过来，某人可能存在严重风险，却并未持有明显”极端”的观点。因此，合规依赖专业判断，而不是一份被禁思想的清单。
Institutions should also consider structural vulnerabilities: an unmonitored booking system, a chaplaincy with no supervision, unvetted contracted staff, foreign-funded student societies, or a welfare team without any Prevent training. These are governance risks as much as they are individual risks.
院校还应考虑结构性脆弱点：无人监督的场地预订系统、缺乏督导的牧灵服务、未经审核的外包员工、受境外资助的学生社团，或完全没有接受过 Prevent 培训的福利团队。这些既是个人层面的风险，也是治理层面的风险。
5. Leadership, Governance and the Designated Prevent Lead | 领导、治理与专职 Prevent 负责人
The 2023 Prevent Duty Guidance places significantly greater emphasis on leadership and accountability than the original 2015 guidance. Governing bodies, proprietors and senior leadership teams are expected to own the duty rather than delegate it entirely to a single member of staff. There should be a named Prevent lead, clear reporting lines to the governing body, and a standing item in governance meetings.
与 2015 年的原始指引相比，2023 年《Prevent 职责指引》显著更加强调领导力与问责。管理机构、办学主体与高级管理团队应当”拥有”这项职责，而不是把它完全下放给某一位员工。院校应设具名的 Prevent 负责人、清晰的向管理机构报告的路线，以及在治理会议中的固定议题。
In practice, strong governance looks like this: a designated safeguarding lead with Prevent in their remit; a deputy to cover absence; an annual report to governors covering referrals, training completion rates and partnership activity; and a documented policy that is reviewed on a fixed cycle. Weak governance is visible in training records that lapse, in policies that name a member of staff who left three years ago, and in referral logs with no recorded outcomes.
在实践中，强有力的治理表现为：由指定的保护负责人（DSL）把 Prevent 纳入其职责范围；设置代理人以防缺位；每年向校董提交报告，涵盖转介数量、培训完成率与合作活动；以及一份按固定周期审阅的书面政策。薄弱的治理则体现在：培训记录过期、政策文件上写的仍是在三年前离职的员工、以及没有记录处理结果的转介台账。
6. Staff Training and Professional Curiosity | 员工培训与专业好奇心
Statutory guidance requires that staff who may encounter people vulnerable to radicalisation receive training. The Home Office’s public-facing campaign summarises the expected behaviour with three words: “Notice, Check, Share”. Staff should notice changes in behaviour, check the concern internally or with the Prevent lead, and share it where there are genuine safeguarding grounds to do so.
法定指引要求，可能接触到易受激进化影响者的员工必须接受培训。内政部面向公众的宣传把期望的行为概括为三个词：”注意、核查、分享”（Notice, Check, Share）。员工应当注意行为变化，在内部或与 Prevent 负责人一起核查该关切，并在确有保护性理由时予以分享。
Training should be tiered rather than uniform. All staff – including catering, estates, security and contract staff – need awareness-level training, because the person who first notices something is often not a teacher. Front-line pastoral, safeguarding and chaplaincy staff need deeper training covering the referral process, consent, information sharing and the signs of radicalisation. Governors need enough training to scrutinise reports intelligently.
培训应当分层，而不是千篇一律。全体员工——包括餐饮、物业、安保与外包员工——都需要意识层面的培训，因为最先注意到问题的人往往并不是教师。前线负责福利、保护与牧灵的员工需要更深层的培训，涵盖转介流程、同意、信息共享以及激进化的迹象。校董也需要足够的培训，才能明智地审视相关报告。
Professional curiosity is the key skill. This means asking open questions, avoiding assumptions based on a student’s ethnicity or religion, and resisting both extremes: dismissing serious concerns to avoid appearing discriminatory, and over-referring to avoid personal responsibility.
关键的技能是”专业好奇心”。这意味着提出开放式问题、避免基于学生族裔或宗教的预设，并抵制两个极端：为避免显得歧视而轻视严重关切，以及为规避个人责任而过度转介。
7. Curriculum, British Values and Building Resilience | 课程、英国价值观与培养韧性
Prevent is not only about reacting to concerns; it is also about building resilience in advance. In England, the fundamental British values of democracy, the rule of law, individual liberty, and mutual respect and tolerance of those with different faiths and beliefs must be promoted as part of a broad and balanced curriculum, and independent schools are required to do so by the Education (Independent School Standards) Regulations 2014.
Prevent 不仅是应对关切，也是在事前培养韧性。在英格兰，民主、法治、个人自由，以及对不同信仰与信念者的相互尊重与宽容这四项基本英国价值观必须作为广博而均衡课程的一部分予以推广；根据《2014 年教育（独立学校标准）条例》，独立学校亦须履行该要求。
Effective practice embeds these values in the existing curriculum rather than bolting on a one-off assembly. Citizenship and PSHE lessons can examine how democratic institutions handle disagreement; history can teach how extremist movements have captured states; computing can address online radicalisation and misinformation; English literature can develop empathy and perspective-taking. Critical thinking about sources is one of the strongest protective factors against extremist recruitment narratives.
有效实践是把这些价值观嵌入既有课程，而不是临时加一场集会。公民课与 PSHE 课可以探讨民主机构如何处理分歧；历史课可以讲授极端主义运动如何攫取国家权力；计算机课可以讨论网络激进化与虚假信息；英语文学可以培养共情与换位思考能力。关于信息来源的批判性思维，是抵御极端主义招募叙事最强的保护因素之一。
Schools should also teach digital resilience explicitly, because online radicalisation now frequently precedes offline contact. Students should understand recommendation algorithms, echo chambers and the deliberate emotional manipulation used in recruitment content.
学校还应明确教授数字韧性，因为如今的网络激进化常常先于线下接触发生。学生应当理解推荐算法、回音室效应，以及招募内容中刻意使用的情绪操纵手法。
8. Speakers, Events and IT: Managing the Environment | 演讲者、活动与 IT：管理环境
Institutions must have clear policies governing external speakers and events, and they must be able to demonstrate that those policies are applied consistently. This does not mean banning controversial speech. It means assessing risk, applying proportionate conditions, ensuring a chair can challenge unlawful content, and being able to explain the decision afterwards.
院校必须制定清晰的外部演讲者与活动政策，并且能够证明这些政策被一致地执行。这并不是要禁止有争议的言论，而是评估风险、施加相称的条件、确保主持人能够制止违法内容，并在事后能够解释该决定。
For higher education providers in England, these policies interact with the OfS’s regulation of freedom of speech and with the statutory duty to secure free speech in higher education institutions, which has been strengthened in recent legislation. The legal analysis is subtle: institutions must both protect lawful speech and manage risk, and the two obligations are not in conflict when the risk assessment is genuinely evidence-based.
对于英格兰的高等教育机构而言，这些政策与 OfS 对言论自由的监管、以及高等教育机构保障言论自由的法定职责相互作用，而后者在近年立法中得到强化。法律分析颇为精微：院校既要保护合法言论，也要管理风险；当风险评估确实基于证据时，这两项义务并不冲突。
IT policies are equally important. Statutory guidance expects filtering of unlawful terrorist-related material on institutional networks, with appropriate flexibility for research and academic study. This flexibility matters: a politics student researching propaganda, a criminology lecturer or a security studies researcher must not be caught by a blunt filtering rule. Filtering should therefore be risk-based, transparent and reviewed, with an exceptions process that is documented.
IT 政策同样重要。法定指引要求院校网络对与恐怖主义相关的违法内容进行过滤，同时为科研与学术研究保留适当弹性。这种弹性很重要：研究宣传材料的政治学学生、犯罪学讲师或安全研究学者，不应被粗暴的过滤规则误伤。因此过滤应当是风险导向的、透明的、定期审阅的，并配有书面记录的例外处理流程。
9. Referrals, Thresholds and the Channel Programme | 转介、阈值与 Channel 项目
When a concern is genuine and proportionate, the usual route is a Prevent referral, most commonly to the local authority or police-led Prevent team. Referral does not mean arrest, charge or a criminal record. It triggers an assessment, and where the threshold is met, consideration of a Channel panel.
当关切真实且合比例时，通常路径是进行 Prevent 转介，最常见的是转介给地方政府或警方主导的 Prevent 团队。转介并不意味着逮捕、起诉或留下刑事记录；它会触发评估，并在达到门槛时考虑提交 Channel 小组。
Channel is a voluntary, confidential, multi-agency safeguarding programme. It is chaired by the local authority and includes police, health, education and social care partners. Because it is voluntary, the person concerned – or, for a minor, the person with parental responsibility – must consent to receive support. Support might range from mentoring and counselling to help with housing, employment or family mediation. Around half of the people discussed at panels are not adopted into Channel, and a substantial number of referrals are closed at the initial screening stage.
Channel 是一项自愿的、保
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