「拒絕准予居留」：持印度旅行文件的流亡藏人與台灣的入境管控

Refusal to Granting Residency: Exiled Tibetans Holding Indian Identity Certificates and Taiwan’s Border Control Policy

流亡印度的藏人是本文所要討論的難民群體，自從中共在1959年佔領西藏，達賴喇嘛流亡印度，隨後十多萬的藏人也陸續逃到印度、尼泊爾等地尋求庇護成為難民，至今已經超過60年，難民的身份已經延續到第二或第三代的身上。印度政府提供他們特殊的身份證明以及旅行的文件――「Identity Certificate，簡稱IC」，得以在出境之後再入境印度，是世界上許多國家也認可的有效證件。
但持有印度旅行文件的流亡藏人被台灣的中華民國政府視為「具高度滯留風險之特定國家人士」，會構成潛在社會安全問題。因此對於流亡藏人入境的申請，長期抱持駁回或拒簽的態度，不論是弘揚佛法、學習語言、或是婚姻依親等理由，即使接受入境，頂多也只能給予2到6個月的停留簽證，多不准申請延期或給予更長時間的居留簽證，並在來台文件上註記「不得改辦居留」，採取風險控管社會安全的優先考量，排除人道考量與人權的措施。為何台灣的政府針對流亡藏人的簽證政策，即使歷經了數度的政黨輪替、蒙藏委員會組織調整以及台灣藏傳佛教勃興的條件改變，不但沒有因勢調整，甚至採取排除的態度？本文將從台藏關係的變遷、無國籍者身份的多重性等面向分析這些現象的根源與人權議題，並指出發展國家人權戰略思維觀點的可能性。

This article discusses one specific group of refugees: exiled Tibetans living in India. In 1959 the Chinese Communist regime occupied Tibet and the Dalai Lama went into exile in India, along with over 100,000 Tibetans who sought asylum in India, Nepal and other countries. The refugee status of the first generation has been g ranted to subsequent generations. The Indian government provides them with identification and travel documents. Using this Identity Certificate they can re-enter India after exiting the country. The Certificate is recognized by many countries as a valid travel document.
However, the ROC government in Taiwan considers Tibetans in exile holding Indian travel documents to be“people from specific countries with a high risk of staying in the country”and hence a national security concern. Exiled Tibetans wishing to enter Taiwan have often been refused visas. Moreover, even when granted—whether for religious reasons, study or marriage—the stay is limited to a maximum of six months. No extension is permitted, nor is it possible to obtain a residence visa. All entry documents are stamped“no change of residence permitted”.
This article analyzes the root causes of this situation and the human rights issues involved. It examines the changes in Taiwan-Tibet relations and the multiple identities of Tibetan refugees and suggests the possibility of developing a new Southbound human rights strategy to grant greater freedom to Tibetans in exile who wish to come to Taiwan.