對台灣難民法制與政策之研究──以走訪肯亞卡庫馬難民營為例

A Study on Taiwan’s Refugee Legal and Policy Framework: Insights from Field Research at the Kakuma Refugee Camp

根據聯合國難民署（UNHCR）統計，全球因戰爭、迫害或災難而被迫流離失所的人數已創下歷史新高，難民人口亦持續逐年攀升，顯示難民問題日益嚴重。在此全球趨勢之下，台灣應如何面對難民議題，以及如何制定有效的法律框架與政策，已成為亟需關注的課題。本文以實際走訪肯亞卡庫馬難民營之觀察，深入了解難民的困境與當地援助系統之運作後，試圖對台灣未來難民法制與政策之制定提出建議。
卡庫馬難民營成立於1992年，至今已成為全球最大的難民營之一，並收容來自多個國家的難民，於此尋求庇護的難民，面臨著提供基本設施不足、資源匱乏、族群衝突與身分上之不確定性等多重問題，考驗著庇護國的政策以及後續的配套與整合措施，其經驗對台灣未來制度建構具有參考價值。雖然台灣未加入相關難民國際公約，行政院曾於2007年提出難民法草案，希望將難民問題加以法制化，而本文藉由對卡庫馬難民營的第一手觀察，期盼能進一步審視難民相關政策與法律框架，並為台灣未來在難民法制及政策的建構上，提供具體建議與深刻反思。

According to statistics from the United Nations High Commissioner for Refugees (UNHCR), the number of people forcibly displaced by war, persecution, or disasters has reached an unprecedented historical level, with the global refugee population continuing to grow annually. This accelerating trend underscores the structural nature of contemporary forced displacement and highlights the urgent need for coordinated and sustained international responses. In this context, the question of how Taiwan should respond to refugee protection challenges - and, more fundamentally, how to establish a humane, effective, and legally grounded refugee governance framework - has become an increasingly salient issue in domestic policy discourse.
This article is built upon first-hand empirical observations from a field visit to the Kakuma Refugee Camp in Kenya to gain a deeper understanding of refugees’lived experiences and the operational realities of on-the-ground support mechanisms. Based on these observations, the article develops policy-oriented recommendations for Taiwan’s future refugee legal framework. Founded in 1992, Kakuma is now one of the world’s largest and longest-standing refugee camps, hosting refugees from diverse national and regional backgrounds. Refugees there face numerous challenges, including inadequate basic infrastructure, chronic resource scarcity, ethnic tensions, and severely constrained access to education, healthcare, and durable legal status.
The experiences in Kakuma offer important comparative insights for Taiwan in shaping its own refugee policies. Although Taiwan has not signed the 1951 Refugee Convention or its 1967 Protocol, the Executive Yuan introduced a draft Refugee Act in 2007, marking an initial attempt to institutionalize refugee protection through domestic legislation. Drawing upon the governance gaps, operational constraints, and protection dilemmas observed in Kakuma, this article critically examines the limitations of Taiwan’s existing policy approach and legal preparedness. Building on this analysis, the article advances a set of concrete and legally oriented reform recommendations. The ultimate goal is for Taiwan to establish a comprehensive and coherent refugee governance regime, enabling it to contribute meaningfully to the global refugee crisis while carefully balancing humanitarian concerns, national security, and social stability.