难民问题是当今全球治理的核心议题之一。尽管自二战以来，国际社会已经为此付出了诸多努力，但由于地缘局势紧张、自然灾害频发、经济复苏艰难等原因，全球难民人数不降反升，当前难民危机治理已经迫在眉睫。难民教育在全球难民危机治理中发挥着重要作用，也是实现联合国2030教育可持续发展目标4的必要环节。但由于种种原因，今天难民儿童和青年的受教育机会依旧有限，迫切需要付诸更多的努力。在这一背景下，本研究关注了联合国难民署领导的全球难民教育治理活动，以期为破解全球难民教育治理的难题提供参考。

本研究立足于现实制度主义视角，借助俞可平教授提出的全球治理五要素作为分析框架，综合运用文献法、访谈法和个案分析法，回顾了联合国难民署参与全球难民教育治理的历史发展及角色变迁，解读了其参与全球难民教育治理的理念、路径、效果以及困境，并通过黎巴嫩叙利亚难民教育治理的个案分析，呈现了联合国难民署全球难民教育治理的动态过程，包括其难民教育治理理念和路径在实践中的落实与应用，取得的实际效果以及在困境层面与主权国家的互动博弈。

概括来讲，本研究主要得出了以下几点结论：第一，联合国难民署参与全球难民教育治理的活动可分为两个历史阶段，其角色经历了从辅助者到领导者的变迁。这一过程体现了现实制度主义理论中的新自由制度主义要素，即在经济全球化背景下各国之间的复合依赖日益加深，面对全球难民危机及其产生的教育问题，各国期待通过与其他国家合作应对，因此必须借助相关国际组织和国际制度来解决，联合国难民署在全球难民教育治理中的作用由此凸显。第二，参与全球难民教育治理是联合国难民署履行其组织任务的应有之义，旨在确保难民的基本权利，向难民提供保护并推动永久解决方案的落实。第三，联合国难民署的全球难民教育治理理念经历了从“遵循原籍国课程的隔离式教育”到“纳入收容国教育系统的包容式教育”的转变，促成这种转变的主要原因是各民族国家对难民问题态度和政策的转变。在实践中，联合国难民署的难民教育治理理念能够在多大程度上得到落实主要取决于收容国的具体政策以及联合国难民署同收容国政府的博弈。第四，联合国难民署凭借伙伴关系、资金和数字技术进行全球难民教育治理。在难民教育的治理过程中，联合国难民署与联合国系统内外的其他行为者建立了广泛的伙伴关系，这些主体之间通过优势互补、资源整合对难民教育进行协同治理。通过提供资金支持，联合国难民署能够对政府、难民及其家庭的教育决策进行干预，从而提升难民儿童的入学率及其在学校的保留率。除此之外，数字技术正逐渐成为联合国难民署参与全球难民教育治理的新工具。通过向难民提供数字化的学习解决方案，收集和监测难民教育治理数据，联合国难民署扩展了难民教育服务的边界，推动了难民教育治理的科学化和循证化发展。第五，联合国难民署的全球难民教育治理取得了一定的成效，具体体现在难民入学率和教育质量都得到了提升，同时纳入收容国教育系统的包容式教育理念在实践中得以逐步推进。但全球难民教育治理的效果相对有限，在为难民创造教育机会和促进难民融入收容国方面还有待进一步提升。第六，联合国难民署全球难民教育治理的主要困境来源于人道主义制度与国家权力政治的矛盾性，具体表现在联合国难民署工作的非政治性和自主性同时受到捐助国政府和收容国政府的挑战。

基于上述对联合国难民署全球难民教育治理活动的研究，本研究又对难民教育治理的理念设定、难民教育治理的责任分配、难民教育治理的改进路径进行了深入讨论，以期为联合国难民署领导下的全球难民教育治理工作提供参考。本研究认为，首先，当前联合国难民署提倡的将难民纳入收容国教育系统的包容式教育理念存在一定的局限性。鉴于难民的未来更有可能是在不同国家之间进行跨国流动，对于难民教育治理理念的思考应该超越民族国家边界，致力于为难民提供全球化的教育支持，推动不同国家间的课程衔接、证书认证，从而帮助难民应对跨国流动带给教育的诸多不确定性。其次，就难民教育治理的责任而言，国际社会应在人类命运共同体理念的指导下，坚持负担和责任分担原则以及比较优势方法，推动各利益相关者根据其专长和能力做出贡献。最后，发展伙伴关系仍然是未来联合国难民署全球难民教育治理的核心路径，除了巩固同国家政府之间的合作外，还要进一步拓展同非政府组织、研究机构、企业、智库在内的社会和市场类的非国家行为体的伙伴关系，推动建立一套高效和完善的协作机制。

The refugee issue is one of the core issues of global governance today. Although the international community has made many efforts since World War II, the number of refugees in the world continues to increase due to geopolitical tensions, frequent natural disasters, difficulties in economic recovery, and so on. Tackling the current refugee crisis has become a pressing issue. Refugee education plays an important role in the governance of the global refugee crisis, and it is an essential pathway to achieving the United Nations 2030 Sustainable Development Goal 4. However, due to several reasons, access to education for refugee children and youth is still limited today and more efforts are urgently needed. In this context, the study focuses on the global refugee education governance led by the United Nations High Commissioner for Refugees (UNHCR) to contribute to the global refugee education governance.

Based on the perspective of realist institutionalism theory, taking global governance elements proposed by Professor Yu Keping as the analytical framework, using document analysis, case study and interview as the research methods, the study reviewed the history of UNHCR in global refugee education, examined the evolution of its role throughout history, illustrated its concept、measures, actual effects and difficulties in global refugee education. In addition, through a case analysis of Syrian refugee education governance in Lebanon, the study showed the dynamic process of UNHCR global refugee education governance, including the implementation and application of its concepts, measures, actual effects in practice, and the dilemma of interaction and game with sovereign states. In summary, the main conclusions of this study are as follows:

First, the UNHCR’s involvement in global refugee education governance can be divided into two historical stages, with its role shifting from a facilitator to a leader. This process reflects the elements of neoliberal institutionalism in realist institutionalism theory, namely the increasing complex interdependence between countries in the context of economic globalization. In the face of the global refugee crisis and the educational problems it has created, countries around the world have been willing to cooperate with others through international organizations and regimes. Therefore, the role of UNHCR in global refugee education governance has been highlighted. Second, participation in the global refugee education governance is an essential way for UNHCR to fulfill its mandate, which aims to ensure the fundamental rights of refugees, provide protection to refugees and promote durable solutions. Third, UNHCR's concept in global refugee education governance has transformed from "segregated education by following the curriculum of the country of origin" to "including refugees into the education system of the host country". The main reason for this shift is the changing attitudes and policies of states towards the refugee issue. In practice, the extent to which the UNHCR’s concept of refugee education governance can be implemented mainly depends on the policies of the host country and the game between the UNHCR and the host government. Fourth, UNHCR relies on partnerships, funding, and digital technology for global refugee education governance. UNHCR has established extensive partnerships with other actors within and outside the United Nations system, which have resulted in collaborative governance of refugee education through complementarity of strengths and integration of resources. By providing financial support, UNHCR is able to intervene in educational decision-making by the government, refugees, and their families, which lead to the increase the enrollment rate and retention rate of refugee children in schools. In addition, digital technology is becoming a new tool for UNHCR in global refugee governance. By providing digital learning solutions for refugees and collecting and monitoring data on refugee education, UNHCR has expanded the education services and promoted refugee education governance to be more scientific and evidence-based. Fifth, UNHCR’s global refugee education governance has achieved certain effects, as evidenced by the increase in refugee enrollment rates and the improvement in the quality of education. At the same time, the concept of inclusion refugee into the education system of host countries has been gradually put into practice. However, these effects are relatively limited. Efforts are still needed to provide more educational opportunities for refugees and to promote their integration into host countries. Sixth, the main dilemma of UNHCR's global refugee education governance stems from the contradiction between the humanitarian system and the politics of national power, which is manifested in the fact that the apolitical nature of UNHCR's work and its autonomy have been challenged by both donor and host governments.

Based on the above, this study also conducts an in-depth discussion related to the concept, responsibilities and actions of refugee education governance, in order to provide some advice to UNHCR’s work on global refugee education governance. First, the study argues that the current concept of inclusive education advocated by the UNHCR has its limitations. Given that the future of refugees is more likely to be transnationalism, the concept of refugee education governance should look beyond the boundaries of nation-states and commit to supporting refugees globally by promoting curriculum articulation and certification recognition to help refugees cope with the uncertainties of education during movement. Second, in terms of the responsibility for refugee education governance, the international community should adhere to the principles of burden and responsibility sharing and comparative advantage under the guidance of the concept of community with a shared future for mankind, and encourage different stakeholders to contribute based on their expertise and capabilities. Finally, partnership will continue to be at the core of UNHCR’s global refugee education governance in the future. In addition to consolidating cooperation with governments, it is necessary to expand partnerships with non-state actors in society and the market, including non-governmental organizations, research institutes, enterprises and think tanks, and to establish effective and comprehensive collaborative mechanisms.