澳大利亚吉拉德政府的难民政策改革为何失败

Why the Refugee Policy Reform of the Gillard Administration failed

本文首先梳理了1973年至2007年间澳大利亚难民政策的演变。20世纪70年代澳大利亚废除了“白澳政策”,并针对越战后的难民危机开始制定新难民政策。自此之后,从弗雷泽至霍华德时期(1975—2007)的四任政府都采取了严厉的边境控制措施,尤其是霍华德的“境外收容”政策成效显著,但却缺乏人道主义精神。陆克文上台后废除了“境外收容”政策,然而同党的吉拉德上台后却又回归日趋严厉的难民政策。论文认为,吉拉德政府的难民政策改革有其国内背景与全球背景;其次将吉拉德难民政策的改革过程分为四个阶段,一开始吉拉德出于政治考量试图回避瑙鲁和巴布亚新几内亚,并在人道主义与国家利益的妥协中寻求改革,却在国内博弈中受挫失败,最终不得不重启“境外收容”政策;最后,吉拉德及其后的各届政府在实施强硬难民政策上达成共识,两党政策逐渐趋同。在人道主义和国家利益之间,澳大利亚最终选择了国家利益优先。

This paper first reviews the evolution of refugee policy from 1973 to 2007.In the 1970s,Australia abolished the“white Australia policy”and began to make new refugee policies in response to the refugee crisis after the Vietnam War.Since then,four administrations,from Fraser to Howard(1975-2007),had adopted strict border control.Notably,the“offshore processing”policy of the Howard government had achieved remarkable results but been blamed for lack of humanitarianism.Kevin Rudd then abolished the policy,but Julia Gillard returned to the increasingly strict refugee asylum policy.The article argues that the refugee policy reform of the Gillard government has its domestic and global background.Secondly,the reform process of Gillard's refugee policy is divided into four stages.Gillard tried to avoid Nauru and PNG for political considerations and pursued reform in the compromise between humanitarianism and national interests.However,she had to restart the“offshore processing”policy after setbacks in the domestic game.Finally,Gillard and the successive administrations formed a consensus on tough refugee policy,and the policy of two parties gradually witnessed a convergence.Faced with the dilemma to choose between humanitarianism and national interests,Australia finally decided on national interests as the priority.