人道主义组织、地方政府与难民治理:以黎巴嫩应对叙利亚难民危机为例

Humanitarian Organizations,Local Governments and Refugee Governance:Based on Field Research on Refugee Governance in Lebanon

近年来,难民主要收容国已经从发达国家转向发展中国家。难民安置地也逐渐从难民营转向收容国城市社区。然而,由于发展中国家治理能力不足、政治生态脆弱,难民安置不仅是收容国面临的新问题,也给国际难民治理带来了新挑战。基于作者2018年10月至2019年1月对黎巴嫩境内难民援助相关方和瑞士日内瓦难民援助人道主义组织总部总计54次的访谈内容以及相关文献分析,本文认为人道主义组织是黎巴嫩难民治理的主力,地方政府是难民治理的前线,中央政府仅发挥着确定基调的作用。这一治理体系在国际社会和难民所在社区之间架起桥梁,为难民的生存提供了基本保障,促进了黎巴嫩社会的稳定,但同时在内部协调、项目规划和难民参与度等方面还存在不足。黎巴嫩难民治理的现状对发展中国家城市社区收容和安置难民具有启示意义。

Major countries of origin and countries of asylum of world refugees have shifted from developed countries to the under-developed ones in recent years.M eanwhile,the dominant living environment of refugees has changed from refugee camps to local communities in the countries of asylum.It has posed a significant challenge for the countries of asylum and international refugee governance because of these under-developed countries’lack of governance capacity and fragile political environment.Based on 54 interviews and literature review from October 2018 to January 2019 with pertinent stakeholders in Lebanon and humanitarian organizations based in Geneva,Switzerland,the paper discloses that humanitarian organizations and local governments are the mainstay and front-lines respectively in Lebanon’s governance of refugees while the central government simply sets the tone of refugee governance.Such a system of refugee assistance builds a bridge between international and local communities,provides basic assistance to refugees and facilitates the political stability of Lebanon.Nevertheless,problems exist,including lack of efficient coordination,rational design of programs and refugees’participation.Refugee governance model in Lebanon provides enlightenments for refugee governance in urban settings of under-developed countries in general.