Paul Collier's new rules for rebuilding a broken nation

33,658 views ・ 2009-06-24

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翻译人员: Sarah Wu 校对人员: Tony Yet
00:16
I'm going to talk about post-conflict recovery
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我要谈的是关于冲突后的重建
00:22
and how we might do post-conflict recovery better.
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以及怎样将重建做得更好。
00:27
The record on post-conflict recovery is not very impressive.
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这方面的记录并不是很好。
00:32
40 percent of all post-conflict situations,
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历史上,经过冲突后重建的地区,
00:36
historically, have reverted back to conflict within a decade.
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有40%在十年内再次发生冲突。
00:40
In fact, they've accounted for half of all civil wars.
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实际上,他们占了所有内战的一半。
00:45
Why has the record been so poor?
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记录为什么这么差呢?
00:48
Well, the conventional approach
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嗯,传统的
00:51
to post-conflict situations
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应对冲突后情况的方法
00:53
has rested on, on kind of, three principles.
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可以说,都是基于三个原则。
00:57
The first principle is: it's the politics that matters.
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第一个原则是:政治才是事关重要的。
01:02
So, the first thing that is prioritized is politics.
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所以,首先被给予优先的是政治,
01:05
Try and build a political settlement first.
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即应该先试着从政治角度解决。
01:10
And then the second step is to say,
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然后是第二步,是宣称:
01:13
"The situation is admittedly dangerous, but only for a short time."
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“情况确实很危险,但只是暂时的。”
01:16
So get peacekeepers there, but get them home as soon as possible.
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于是就会派维和人员过去,不过要让他们尽快撤出。
01:21
So, short-term peacekeepers.
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因此,第二个原则就是短期维和。
01:24
And thirdly, what is the exit strategy for the peacekeepers?
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第三个原则:维和人员撤出的策略是什么?
01:28
It's an election.
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是选举,
01:30
That will produce a legitimate and accountable government.
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通过选举产生一个合法负责的政府。
01:35
So that's the conventional approach.
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这就是传统应对冲突后状况的方法了。
01:38
I think that approach denies reality.
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我认为这种方法是在否认现实。
01:42
We see that there is no quick fix.
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我们很明白根本不可能速战速决。
01:46
There's certainly no quick security fix.
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根本也不可能短期就实现维和。
01:49
I've tried to look at the risks of reversion to conflict,
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我试着观察,在冲突结束后的十年间,
01:52
during our post-conflict decade.
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再次发生冲突的风险。
01:54
And the risks stay high throughout the decade.
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结论是,整个十年间,这种风险都很高,
01:58
And they stay high regardless of the political innovations.
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并且不因政治革新而减低。
02:05
Does an election produce an accountable and legitimate government?
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此外,选举能产生合法可靠的政府吗?
02:10
What an election produces is a winner and a loser.
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不,选举产生的是一个赢家和一个失败者。
02:15
And the loser is unreconciled.
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而失败者是不会甘心的。
02:20
The reality is that we need to reverse the sequence.
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实际上,我们应该调换一下顺序,
02:24
It's not the politics first;
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政治不应该排第一,
02:26
it's actually the politics last.
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而应该是最后。
02:29
The politics become easier as the decade progresses
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冲突后十年间,政治会变得更容易,
02:32
if you're building on a foundation
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如果重建是以安定和经济发展
02:35
of security and economic development --
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为基础。
02:40
the rebuilding of prosperity.
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重建繁荣
02:42
Why does the politics get easier?
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为什么政治会变的更容易呢?
02:44
And why is it so difficult initially?
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还有,为什么原来那么困难?
02:46
Because after years of stagnation and decline,
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因为经过多年的发展停滞和倒退
02:50
the mentality of politics is that it's a zero-sum game.
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政客会持一种“零和”心态,即一方有所得,另一方必有所失,得失相加等于零。
02:56
If the reality is stagnation,
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现实既然停滞不动,
02:58
I can only go up if you go down.
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那么如果有人下台,就得有人上台。
03:01
And that doesn't produce a productive politics.
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以这样的心态从政,是没法有什么成果的。
03:06
And so the mentality has to shift from
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因此,心态必须改变,
03:09
zero-sum to positive-sum
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由“零和”变成“正和”,
03:11
before you can get a productive politics.
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这样政治才可能出成果。
03:15
You can only get positive, that mental shift,
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要想得到好的结果,就要转变心态,
03:17
if the reality is that prosperity is being built.
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相信繁荣正在恢复。
03:21
And in order to build prosperity, we need security in place.
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要重建繁荣,安全措施就要到位。
03:26
So that is what you get when you face reality.
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这才是面对现实的好处。
03:28
But the objective of facing reality
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不过,面对现实的目的
03:30
is to change reality.
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是为了改变现实。
03:32
And so now let me suggest
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因此,接下来我想提
03:34
two complimentary approaches
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两条补充办法
03:38
to changing the reality of the situations.
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来改变现状。
03:41
The first is to recognize the interdependence
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第一条是认识到三个主要角色的相互依赖性——
03:45
of three key actors, who are different actors,
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这三个因素各不相同
03:50
and at the moment are uncoordinated.
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且目前还不能协调运作。
03:53
The first actor is the Security Council.
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第一个角色是安全委员会,
03:56
The Security Council typically has the responsibility
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它一般负责
04:00
for providing the peacekeepers
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输送维和人员
04:02
who build the security.
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来维持安定。
04:05
And that needs to be recognized,
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这里,首先要肯定的是
04:07
first of all, that peacekeeping works.
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维和是有用的,
04:10
It is a cost-effective approach.
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是一种低成本高效率的方法,
04:12
It does increase security.
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能切实提高社会的安全度。
04:15
But it needs to be done long-term.
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不过,要强调的是,维和应该是一项长期工程,
04:17
It needs to be a decade-long approach,
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持续时间应达上十年,
04:19
rather than just a couple of years.
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而不是三两年就完事了。
04:21
That's one actor, the Security Council.
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这是安全委员会这个角色。
04:24
The second actor, different cast of guys,
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第二个来自另一个阶层的角色,
04:27
is the donors.
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是捐助者,
04:29
The donors provide post-conflict aid.
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他们在冲突发生后提供资助。
04:32
Typically in the past,
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过去经常发生的情况是,
04:35
the donors have been interested in the first couple of years,
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捐助者在头几年里很热心,
04:38
and then they got bored.
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可后来就失去了兴趣,
04:40
They moved on to some other situation.
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转去关注其它事件。
04:43
Post-conflict economic recovery
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然而实际是,冲突后的经济复苏
04:45
is a slow process.
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是一个缓慢的过程。
04:47
There are no quick processes in economics
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经济学上没有什么是能很快就发生,
04:50
except decline.
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除了经济衰退,
04:52
You can do that quite fast.
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这个发生起来可快了。
04:54
(Laughter)
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(观众笑)
04:55
So the donors have to stick with this situation
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所以,捐助者要坚持下去,
05:00
for at least a decade.
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至少坚持捐助一个事件十年。
05:04
And then the third key actor
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然后是第三个重要角色,
05:06
is the post-conflict government.
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冲突后的政府。
05:09
And there are two key things it's got to do.
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有两件重要的事是它必须要做的。
05:11
One is it's got to do economic reform,
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一是必须要经济改革,
05:15
not fuss about the political constitution.
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而不是在政治格局方面争论不休。
05:18
It's got to reform economic policy.
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它要做的是革新经济政策。
05:20
Why? Because during conflict
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为什么?因为冲突发生时,
05:23
economic policy typically deteriorates.
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经济政策一般都会恶化。
05:26
Governments snatch short-term opportunities
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政府只顾攫取短期利益,
05:30
and, by the end of the conflict, the chickens have come home to roost.
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到冲突结束时,就会发现害人终害己。
05:34
So this legacy of conflict is really bad economic policy.
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所以冲突的一个产物就是恶性经济政策。
05:37
So there is a reform agenda, and there is an inclusion agenda.
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那么就要有一个改革计划,以及一个吸纳各方力量的计划。
05:41
The inclusion agenda doesn't come from elections.
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这个吸纳计划不是通过选举产生——
05:44
Elections produce a loser, who is then excluded.
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选举产生的是失败者,要排除在外。
05:49
So the inclusion agenda means genuinely
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吸纳计划是真正
05:52
bringing people inside the tent.
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将人们集聚到同一个帐营下来。
05:55
So those three actors.
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这就是重建繁荣的三个重要角色,
05:57
And they are interdependent
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他们在很长的一段时期内,
05:59
over a long term.
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是相互依赖的。
06:02
If the Security Council doesn't commit to security
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如果安全委员会
06:06
over the course of a decade,
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十年内不能致力于社会安定,
06:08
you don't get the reassurance which produces private investment.
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就没法让人安心进行个人投资;
06:12
If you don't get the policy reform and the aid,
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如果没有政策改革和捐助,
06:16
you don't get the economic recovery,
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经济就不能复苏,
06:18
which is the true exit strategy for the peacekeepers.
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维和人员就没法真正撤出。
06:22
So we should recognize that interdependence,
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因此,对于这种相互依赖性,
06:26
by formal, mutual commitments.
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应该以各方的正式承诺来相互认定。
06:29
The United Nations actually has a language
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事实上,联合国对于这种相互承诺,
06:32
for these mutual commitments, the recognition of mutual commitments;
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有专门的表述,
06:35
it's called the language of compact.
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叫做约定语言,
06:39
And so we need a post-conflict compact.
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而我们需要的就是冲突后约定。
06:42
The United Nations even has an agency which could broker these compacts;
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联合国甚至还有个对这类约定仲裁的机构,
06:45
it's called the Peace Building Commission.
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叫做“和平建立委员会”。
06:49
It would be ideal to have a standard set of norms
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要是有一套标准就理想了,
06:54
where, when we got to a post-conflict situation,
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这样不论何时何地出现冲突后事件,
06:57
there was an expectation of these mutual commitments
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人们可以期待上述三个角色
07:01
from the three parties.
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建立履行这些承诺。
07:04
So that's idea one:
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以上是我的两条改变冲突后现状的补充方法之一——
07:07
recognize interdependence.
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认识相互依赖性。
07:10
And now let me turn to the second approach, which is complimentary.
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下面我要讲的是第二个补充办法,
07:14
And that is to focus on a few critical objectives.
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即专注于实现几个关键目标。
07:23
Typical post-conflict situation is a zoo
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传统的冲突后情况就像一个动物园,
07:26
of different actors with different priorities.
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里面有许多不同的角色,他们都有不同的侧重点。
07:30
And indeed, unfortunately, if you navigate by needs
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如果以需求为导向,那么很不幸的,
07:34
you get a very unfocused agenda,
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将会有一堆杂乱、没有重点的事要办。
07:37
because in these situations, needs are everywhere,
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这是因为冲突后,需求无处不在,
07:40
but the capacity to implement change is very limited.
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而满足这些需求的能力是有限的。
07:44
So we have to be disciplined and focus on things that are critical.
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所以我们应有秩序,集中解决关键的事。
07:49
And I want to suggest that in the typical post-conflict situation
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我的建议是,在一般的冲突后情况下,
07:52
three things are critical.
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三件事是关键的。
07:55
One is jobs.
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一是就业,
07:57
One is improvements in basic services --
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一是改进基础服务,
07:59
especially health, which is a disaster during conflict.
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尤其是卫生,冲突时根本无卫生可言。
08:03
So jobs, health, and clean government.
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另一个是廉洁的政府。
08:08
Those are the three critical priorities.
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这三者是当务之急。
08:12
So I'm going to talk a little about each of them.
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下面我会就这三者稍微分别谈论一下。
08:14
Jobs.
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就业
08:16
What is a distinctive approach
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什么方法是明确有效的,
08:19
to generating jobs in post-conflict situations?
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能在冲突后的地区创造就业机会?
08:22
And why are jobs so important?
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还有为什么就业如此重要?
08:24
Jobs for whom? Especially jobs for young men.
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让谁就业?首要是年轻男人。
08:29
In post-conflict situations,
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发生过冲突的地区,
08:31
the reason that they so often revert to conflict,
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之所以日后常常再次发生冲突,
08:35
is not because elderly women get upset.
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不是因为上了年纪的妇女,
08:38
It's because young men get upset.
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而是因为年轻男人不安分。
08:41
And why are they upset? Because they have nothing to do.
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他们为什么不安分?因为他们没事做。
08:44
And so we need a process of generating jobs,
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正因此,要有套流程,
08:50
for ordinary young men, fast.
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给普通年轻男人制作工作机会,而且要快。
08:53
Now, that is difficult.
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而要做到这一点,是不容易的。
08:56
Governments in post-conflict situation
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冲突后的政府
08:58
often respond by puffing up the civil service.
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通常的应对方式是猛招公务员。
09:02
That is not a good idea.
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这不是个好方法。
09:04
It's not sustainable.
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它不是长久之计。
09:06
In fact, you're building a long-term liability
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实际上,把政府部门变得臃肿,
09:09
by inflating civil service.
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是在欠下长期债务。
09:11
But getting the private sector to expand is also difficult,
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然而,要让私人行业扩张也很困难。,
09:15
because any activity which is open to international trade
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因为任何国际贸易相关的业务
09:20
is basically going to be uncompetitive
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在冲突后情况下
09:22
in a post-conflict situation.
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基本都不会有竞争力。
09:24
These are not environments where you can build export manufacturing.
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这种环境下发展出口型生产是行不通的。
09:29
There's one sector which isn't exposed to international trade,
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有一个行业,跟国际贸易无关,
09:34
and which can generate a lot of jobs,
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并且能创造很多工作机会,
09:37
and which is, in any case, a sensible sector
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而且这个行业,无论怎么说,
09:39
to expand, post-conflict,
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在冲突后扩大,都是很明智的。
09:41
and that is the construction sector.
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它就是建筑业。
09:45
The construction sector has a vital role,
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建筑业很明显,在重建中,
09:48
obviously, in reconstruction.
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扮演关键角色。
09:51
But typically that sector has withered away during conflict.
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不过冲突过程中,它一般都萎缩掉了。
09:56
During conflict people are doing destruction.
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冲突时,人们是破坏建筑,
09:58
There isn't any construction going on. And so the sector shrivels away.
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没有任何工程在建,行业也因此收缩了。
10:02
And then when you try and expand it,
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那么当想要扩张的时候,
10:04
because it's shriveled away,
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由于行业已经收缩了,
10:06
you encounter a lot of bottlenecks.
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就会碰到很多瓶颈。
10:09
Basically, prices soar
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基本的,价格飞涨,
10:11
and crooked politicians then milk the rents from the sector,
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不良政客还要从中牟利,
10:15
but it doesn't generate any jobs.
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却没有新的工作岗位产生。
10:17
And so the policy priority is to break the bottlenecks
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为此,应有政策优先打破
10:20
in expanding the construction sector.
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妨碍建筑业扩张的瓶颈。
10:23
What might the bottlenecks be?
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瓶颈有哪些?
10:25
Just think what you have to do
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只要设想一下有个建筑项目,要雇用大量劳动力,
10:28
successfully to build a structure, using a lot of labor.
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有什么是要顺利完成的,就清楚了。
10:31
First you need access to land.
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首先需要土地。
10:33
Often the legal system is broken down
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通常这个时候法律系统是瘫痪的,
10:35
so you can't even get access to land.
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可能根本没法得到土地。
10:37
Secondly you need skills,
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其次需要技术,
10:39
the mundane skills of the construction sector.
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建筑业必须的技术。
10:43
In post-conflict situations we don't just need Doctors Without Borders,
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冲突后,需要的不只是无国界医生,
10:47
we need Bricklayers Without Borders,
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还需要无国界的砖瓦匠
10:49
to rebuild the skill set.
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来重新掌握技术。
10:52
We need firms. The firms have gone away.
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另外还需要公司。原来的公司已经撤掉了,
10:55
So we need to encourage the growth of local firms.
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那就要鼓励发展地方企业。
10:58
If we do that, we not only get the jobs,
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这样做,不仅能制造就业机会,
11:01
we get the improvements in public infrastructure,
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还能改善基础公共设施,
11:04
the restoration of public infrastructure.
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修复基础公共设施。
11:07
Let me turn from jobs to the second objective,
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讲了就业,下面要讲第二个目标,
11:13
which is improving basic social services.
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即改善基础社会服务。
11:17
And to date, there has been a sort of a schizophrenia
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然而至今为止,关于冲突后情况下,
11:21
in the donor community,
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如何改善基本服务,
11:23
as to how to build basic services
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在捐助者群体中,
11:26
in post-conflict sectors.
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存在着一种精神分裂。
11:28
On the one hand it pays lip service
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一方面,他们嘴上说的很好听,
11:30
to the idea of rebuild an effective state
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要重建一个有效的国家,
11:34
in the image of Scandinavia in the 1950s.
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以50年代的斯堪的纳维亚为蓝本;
11:37
Lets develop line ministries of this, that, and the other,
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设立这样那样的部
11:40
that deliver these services.
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来提供这些服务。
11:43
And it's schizophrenic because in their hearts
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说捐助者们精神分裂,是因为他们心里知道
11:46
donors know that's not a realistic agenda,
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这样的计划是不现实的。
11:49
and so what they also do is the total bypass:
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所以尽管这样说,他们做的却是绕道而行,
11:52
just fund NGOs.
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即资助非政府组织。
11:56
Neither of those approaches is sensible.
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这些方法其实都行不通。
11:59
And so what I'd suggest
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我的建议,
12:03
is what I call Independent Service Authorities.
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我把它叫做“独立服务权威机构”。
12:06
It's to split the functions of a monopoly line ministry up into three.
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这个机构把原来政府一把抓的职能分成三个部分
12:11
The planning function and policy function stays with the ministry;
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规划和制定政策的功能仍归政府部门,
12:15
the delivery of services on the ground,
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而政策服务的实地执行
12:18
you should use whatever works --
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要启用任何可用的力量,
12:20
churches, NGOs, local communities,
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包括教堂,民间组织,当地社区等,
12:23
whatever works.
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所有的力量。
12:25
And in between, there should be a public agency,
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而这中间,应该有一个公共机构,
12:28
the Independent Service Authority,
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也就是我说的“地理服务权威机构”,
12:30
which channels public money,
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负责将公众的钱
12:32
and especially donor money,
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特别是捐款
12:34
to the retail providers.
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发放给各类服务的供应商。
12:37
So the NGOs become part of a public government system,
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这样,民间组织就变成了一个公共政府系统的一部分,
12:42
rather than independent of it.
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而不是独立于政府之外的。
12:45
One advantage of that is that you can allocate money coherently.
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这样做,一个好处是可以系统地分配钱,
12:49
Another is, you can make NGOs accountable.
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另外还能使民间组织对自身的行为负责。
12:52
You can use yardstick competition,
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为此,可以设立竞争的标准,
12:54
so they have to compete against each other
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这样不同的民间组织可以互相竞争
12:57
for the resources.
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来获取资源。
12:59
The good NGOs, like Oxfam, are very keen on this idea.
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优秀的民间组织,如Oxfam,就会赞成这种做法,
13:02
They want to have the discipline and accountability.
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他们希望有纪律性和责任制。
13:08
So that's a way to get basic services scaled up.
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以上讲的就是改善基础服务的一个方法。
13:11
And because the government would be funding it,
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由于这个方法政府也要赞助,
13:14
it would be co-branding these services.
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因此可以给活动命名时加上自己的名义。
13:16
So they wouldn't be provided thanks to
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这样活动就不是
13:20
the United States government and some NGO.
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以美国政府和某个非政府组织的名义了,
13:24
They would be co-branded
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而是可以加上
13:26
as being done by the post-conflict government, in the country.
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冲突后国家的政府的名义。
13:31
So, jobs, basic services, finally, clean government.
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这样,就业和基础服务有了,最后还有了廉洁的政府。
13:37
Clean means follow their money.
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“廉洁”指的是追踪钱的去处。
13:40
The typical post-conflict government is so short of money
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一般的冲突后政府都会急缺钱,
13:45
that it needs our money
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甚至到了要靠我们的捐款
13:47
just to be on a life-support system.
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来维持生命。
13:50
You can't get the basic functions of the state done
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如果我们不给这些国家提供核心预算的钱,
13:53
unless we put money into the core budget of these countries.
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他们的政府基本职能就没法实现。
13:57
But, if we put money into the core budget,
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但如果我们投了钱进去,
14:01
we know that there aren't the budget systems with integrity
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我们知道不会有可靠的预算体系
14:08
that mean that money will be well spent.
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来保证钱用的到位。
14:11
And if all we do is put money in and close our eyes
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所以,如果我们只是捐钱,然后就什么都不管,
14:15
it's not just that the money is wasted --
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那么不只钱会被浪费,
14:17
that's the least of the problems --
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这个问题还是最其次的,
14:19
it's that the money is captured.
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问题是这些钱会被利用了,
14:22
It's captured by the crooks who are at the heart of the political problem.
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被那些侵蚀政府的蛀虫给利用了,
14:28
And so inadvertently we empower the people who are the problem.
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而无意中,我们就成了这些蛀虫的帮凶。
14:33
So building clean government means, yes, provide money
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所以要构建廉洁的政府,的确是要
14:36
to the budget,
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提供资金来做预算,
14:38
but also provide a lot of scrutiny,
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但同时还要提供充分的监督,
14:43
which means a lot of technical assistance that follows the money.
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即提供了钱之后,还要提供大量的技术支持来追踪钱的去向。
14:46
Paddy Ashdown, who was the grand high nabob of Bosnia
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帕迪·阿什唐,原联合国
14:51
to the United Nations,
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波斯尼亚最高代表,
14:53
in his book about his experience, he said,
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在他的书中说:
14:55
"I realize what I needed
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“我发现在得到钱以后,
14:58
was accountants without borders,
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我需要的
15:02
to follow that money."
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是无国界的会计师来监督那些钱。”
15:04
So that's the -- let me wrap up,
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所以,这就是,总结起来,
15:07
this is the package.
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就是一个计划包。
15:10
What's the goal?
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它的目标?
15:12
If we follow this, what would we hope to achieve?
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假如遵循这个计划包,我们想达到什么目标?
15:16
That after 10 years,
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目标就是经过十年,
15:19
the focus on the construction sector
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集中发展建筑业
15:22
would have produced both jobs
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会带来工作机会,
15:24
and, hence, security --
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以及社会安定,
15:26
because young people would have jobs --
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应为年轻人都有了工作。
15:28
and it would have reconstructed the infrastructure.
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此外,还完成了基础设施的重建,
15:32
So that's the focus on the construction sector.
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这既是集中发展建筑业想要实现的目标。
15:35
The focus on the basic service delivery
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通过独立的权威服务机构,
15:37
through these independent service authorities
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来集中提供基础服务,
15:40
would have rescued basic services
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将拯救这些服务,
15:43
from their catastrophic levels,
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使它们不再是灾难的水平。
15:46
and it would have given ordinary people
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这个计划包还会使老百姓
15:49
the sense that the government was doing something useful.
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感觉到政府是做了实事的。
15:53
The emphasis on clean government
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对廉洁政府的强调
15:56
would have gradually squeezed out the political crooks,
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会逐渐把政治蛀虫清理掉,
15:59
because there wouldn't be any money
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因为从政
16:03
in taking part in the politics.
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再没钱好捞了。
16:05
And so gradually the selection,
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所以逐渐的选举,
16:07
the composition of politicians,
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或政府人员的构成
16:09
would shift from the crooked to the honest.
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会由腐败变成诚实的。
16:14
Where would that leave us?
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这样会带来什么?
16:17
Gradually it would shift
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会逐渐的使
16:19
from a politics of plunder
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一个充满掠夺的政治转向
16:22
to a politics of hope. Thank you.
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一个充满希望的政治。谢谢。
16:25
(Applause)
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(掌声)
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