Peter Eigen: How to expose the corrupt

譯者: Geoff Chen 審譯者: Shelley Krishna Tsang

I am going to speak about corruption,

我將要談論腐敗的問題，

but I would like to juxtapose

但是我想先將兩件不同的事情

two different things.

放在一起說說。

One is the large global economy,

其一是宏大的全球經濟，

the large globalized economy,

全球化經濟，

and the other one is the small, and very limited,

而另外一個則是渺小的而且非常受限的

capacity of our traditional governments

舊式政府

and their international institutions

以及其國際組織

to govern, to shape, this economy.

對經濟的監控以及改造能力。

Because there is this asymmetry,

這種不對稱性的存在，

which creates, basically,

基本上導致了

failing governance.

無能失策的政府。

Failing governance in many areas:

政府的無能表現在很多方面，

in the area of corruption and the area of destruction of the environment,

例如腐敗以及環境的破壞，

in the area of exploitation of women and children,

對婦女和兒童的剝削，

in the area of climate change,

以及氣候變化，等等。

in all the areas in which we really need

在所有的這些領域中，我們真的很需要

a capacity to reintroduce

重新引介政府效能

the primacy of politics

在經濟活動中的

into the economy,

首要地位

which is operating in a worldwide arena.

達成一個世界級的合作。

And I think corruption,

而我認為腐敗

and the fight against corruption,

和針對腐敗的反擊

and the impact of corruption,

以及腐敗的影響

is probably one of the most interesting ways

也許是最有趣的方式

to illustrate what I mean

來闡明我

with this failure of governance.

對政府無能失策的看法。

Let me talk about my own experience.

我來談談我的經歷吧。

I used to work as the director

我曾經擔任

of the World Bank office in Nairobi

世界銀行在奈洛比辦事處的總監

for East Africa.

服務區域是東非

At that time, I noticed

那時候我注意到

that corruption, that grand corruption,

腐敗，那種明目張膽的腐敗，

that systematic corruption,

系統性的腐敗

was undermining everything we were trying to do.

不斷侵蝕著我們的努力成果。

And therefore, I began

所以，我開始

to not only try to protect

竭力維護

the work of the World Bank,

世界銀行的工作成果，

our own projects, our own programs

我們的項目，我們的各項企劃

against corruption,

防止它們受到腐敗的侵害

but in general, I thought, "We need a system

但總體而言，我認為，我們需要一種制度

to protect the people

去保衛

in this part of the world

該地區的人民

from the ravages of corruption."

使他們免受腐敗的侵害。

And as soon as I started this work,

然而，一當我展開工作時，

I received a memorandum from the World Bank,

我就收到了世界銀行法律部門

from the legal department first,

的一封便函

in which they said, "You are not allowed to do this.

函內寫道，你這樣做是不被允許的。

You are meddling in the internal affairs of our partner countries.

你這是在干預我們合作國家的內政。

This is forbidden by the charter of the World Bank,

這是世界銀行綱領所禁止的。

so I want you to stop your doings."

所以，我們要求你停止你的行動。

In the meantime, I was chairing

在那段時期，我正在主持

donor meetings, for instance,

捐贈者會議

in which the various donors,

各類捐贈者都出席了會議

and many of them like to be in Nairobi --

他們中的很多人喜歡待在奈洛比--

it is true, it is one of the

的確，它是世界上

unsafest cities of the world,

最不安全的城市之一，

but they like to be there because the other cities

但是他們喜歡待在這裡，因為其他城市

are even less comfortable.

讓人感覺更不舒服。

And in these donor meetings, I noticed

在這些捐贈者回憶中，我注意到，

that many of the worst projects --

很多最差的專案

which were put forward

總是被

by our clients, by the governments,

我們的顧客、政府、

by promoters,

贊助人

many of them representing

他們其中很多人代表

suppliers from the North --

北方的供應商，

that the worst projects

最先地

were realized first.

啟動進行。

Let me give you an example:

讓我來給你們舉一個例子:

a huge power project,

一個巨大的能源項目，

300 million dollars,

價值30億，

to be built smack into

將在

one of the most vulnerable, and one of the most beautiful,

世界上最脆弱、又最美麗的地域之一，

areas of western Kenya.

肯亞西部開始啟動。

And we all noticed immediately

我們都立刻發現，

that this project had no economic benefits:

這個專案沒有經濟利益。

It had no clients, nobody would buy the electricity there,

他沒有消費者。沒人會從那裡購買電力。

nobody was interested in irrigation projects.

沒人對灌溉項目感興趣。

To the contrary, we knew that this project

相反地，我們知道這項工程

would destroy the environment:

會摧毀環境，

It would destroy riparian forests,

會毀掉河岸森林，

which were the basis for

而這些正是

the survival of nomadic groups,

那個區域的遊牧部族，

the Samburu and the Turkana in this area.

如Samburu和Tokana部族所賴以生存的。

So everybody knew this is a, not a useless project,

所以，每個人都知道這不僅是個沒用的項目，

this is an absolute damaging, a terrible project --

更是個絕對毀滅性的、可怕的項目。

not to speak about the future indebtedness of the country

且不說這個國家將來會因此負債累累，

for these hundreds of millions of dollars,

虧欠億萬美元，

and the siphoning off

它還會貪婪地吞噬

of the scarce resources of the economy

本來可以花在

from much more important activities

如學校、醫院等更重要的活動上的

like schools, like hospitals and so on.

稀少有限的資源。

And yet, we all rejected this project,

我們都駁回了這個項目。

none of the donors was willing

沒有一個捐獻者願意

to have their name connected with it,

讓自己的名字和這個項目扯上任何關係。

and it was the first project to be implemented.

但是這個項目是最先開始執行的。

The good projects, which we as a donor community

好的項目，那些我們捐獻者群體

would take under our wings,

願意鼎力相助的項目，

they took years, you know,

卻被拖了一年又一年

you had too many studies,

你得做很多研究，

and very often they didn't succeed.

而且通常它們都不會成功。

But these bad projects,

但是這些差勁的項目卻總一帆風順，

which were absolutely damaging -- for the economy

儘管它們我們的經濟有著絕對損害

for many generations, for the environment,

會影響到幾代人的環境，

for thousands of families who had to be resettled --

會讓成千上萬的家庭流離失所。

they were suddenly put together

這些項目很突然地成型

by consortia of banks,

幫助它們的是銀行的聯合體、

of supplier agencies,

支持供應商的社團

of insurance agencies --

和保險公司。

like in Germany, Hermes, and so on --

像在德國，愛馬仕公司等等就是背後的推手。

and they came back very, very quickly,

它們很快很快地捲土重來

driven by an unholy alliance

背後的驅動力是

between the powerful elites

國家裡

in the countries there

強大精英間的不正義的同盟

and the suppliers from the North.

以及北方的供應商。

Now, these suppliers

現在，這些供應商

were our big companies.

是我們的大公司。

They were the actors of this global market,

他們是這全球市場的活躍角色，

which I mentioned in the beginning.

正如我在演講之初所指出的一樣。

They were the Siemenses of this world,

它們是世界上那些像西門子一樣強大的公司，

coming from France, from the UK, from Japan,

來自法國、英國、日本、

from Canada, from Germany,

加拿大、德國，

and they were systematically driven

它們被有體系的、大型的腐敗

by systematic, large-scale corruption.

有規則地驅動前進。

We are not talking about

我們不是在討論

50,000 dollars here,

五萬美元的腐敗，

or 100,000 dollars there, or one million dollars there.

也不是十萬，或一百萬。

No, we are talking about 10 million, 20 million dollars

我們在討論的，是一千萬、兩千萬美元，

on the Swiss bank accounts,

它們以賄款的形勢出現在瑞士的帳號上、

on the bank accounts of Liechtenstein,

列支敦士登的銀行帳戶裡，

of the president's ministers,

那些帳戶屬於總統的部長、

the high officials in the para-statal sectors.

半國營部門的高級官員。

This was the reality which I saw,

這就是我看到的現實，

and not only one project like that:

而且這樣的情況不是個例

I saw, I would say,

我敢說我在

over the years I worked in Africa,

我在非洲工作的這些年裡

I saw hundreds of projects like this.

看見過成百上千個這樣的項目。

And so, I became convinced

因此，我相信

that it is this systematic corruption

這種系統性的腐敗

which is perverting economic policy-making in these countries,

正在使這些國家的經濟政策走向歧途，

which is the main reason

也正是這種腐敗將這些國家推進

for the misery, for the poverty,

苦難、貧窮、

for the conflicts, for the violence,

衝突、暴力、

for the desperation

絕望

in many of these countries.

的深淵。

That we have today

現今，我們有

more than a billion people below the absolute poverty line,

超過十億的人處在絕對貧窮線以下

that we have more than a billion people

我們有超過十億人

without proper drinking water in the world,

沒有合理處理過的清水可以飲用

twice that number,

更有兩倍那麼多的人，

more than two billion people

超過二十億的人

without sanitation and so on,

沒有衛生設備等等，

and the consequent illnesses

因此女人和孩子

of mothers and children,

經常受到疾病侵襲

still, child mortality of more than

直至今日，每年還有

10 million people every year,

超過千萬的兒童

children dying before they are five years old:

在五歲前死亡。

The cause of this is, to a large extent,

追根溯源，這些問題在很大程度上

grand corruption.

是因為規模龐大的腐敗。

Now, why did the World Bank

那麼，為什麼世界銀行

not let me do this work?

不讓我對此作出反應呢？

I found out afterwards,

我在一次與世界銀行的大爭執後，離開此機構

after I left, under a big fight, the World Bank.

後來我才搞明白:

The reason was that the members of the World Bank

原因是，世界銀行的成員國

thought that foreign bribery was okay,

覺得對外賄賂是沒問題的，

including Germany.

比如德國就這麼認為。

In Germany, foreign bribery was allowed.

在德國，對外行賄是被允許的。

It was even tax-deductible.

它甚至是可免稅的。

No wonder that most of the most important

難怪絕大多數德國、

international operators in Germany,

法國、英國、斯堪地那維亞，

but also in France and the UK

所有地方大多數最重要的跨國企業

and Scandinavia, everywhere, systematically bribed.

都有系統地進行著賄賂

Not all of them, but most of them.

我不是說所有的，但是絕大多數的公司對此都不能問心無愧。

And this is the phenomenon

我把這樣一個現象

which I call failing governance,

稱作治理失敗

because when I then came to Germany

當我來到德國

and started this little NGO

成立了這個小小的非政府組織

here in Berlin, at the Villa Borsig,

在柏林，在Villa Borsig，

we were told, "You cannot stop

我們被告知，我們不能阻止

our German exporters from bribing,

德國出口商行賄，

because we will lose our contracts.

因為我們德國會因此失去合約。

We will lose to the French,

我們會輸給法國人、

we will lose to the Swedes, we'll lose to the Japanese."

瑞士人、日本人，

And therefore, there was a indeed a prisoner's dilemma,

因此，這就形成了一個“囚徒困境”

which made it very difficult

這樣一來，

for an individual company,

單獨的公司，

an individual exporting country

或者出口國

to say, "We are not going to

就很難說，我們將不再

continue this deadly, disastrous

繼續這種災難性的

habit of large companies to bribe."

行賄習慣了。

So this is what I mean

這就是我所知的

with a failing governance structure,

失能的政府結構

because even the powerful government,

因為即使是強大的政府，

which we have in Germany, comparatively,

如相對強大的德國政府，

was not able to say,

也不能夠說，

"We will not allow our companies to bribe abroad."

我們將不允許我們的公司在海外行賄。

They needed help,

它們需要幫助

and the large companies themselves

而且這些大公司本身

have this dilemma.

也身處這種兩難的境地。

Many of them didn't want to bribe.

其中很多公司並不想行賄。

Many of the German companies, for instance,

比如，很多德國公司

believe that they are really

相信它們確實是

producing a high-quality product

能夠製造出物美價廉、

at a good price, so they are very competitive.

有競爭力的產品。

They are not as good at bribing

它們不如其他國際競爭者

as many of their international competitors are,

善於行賄之術，

but they were not allowed

但是它們沒有機會

to show their strengths,

展現自己的長處

because the world was eaten up

因為這個世界

by grand corruption.

正在被大規模的腐敗侵蝕。

And this is why I'm telling you this:

我想說的是，隨著政府的失能，

Civil society rose to the occasion.

公民社會組織就應站出來。

We had this small NGO,

我們有一個小型的非政府組織，

Transparency International.

「透明國際」(Transparency International)

They began to think of

我們開始設想

an escape route from this prisoner's dilemma,

一條從“囚徒困境”裡的逃生之路，

and we developed concepts

我們也開始闡揚

of collective action,

集體行動的概念，

basically trying to bring various competitors

即嘗試將不同的競爭者

together around the table,

集合到談判桌前，

explaining to all of them

向他們解釋

how much it would be in their interests

如果他們同時停止行賄

if they simultaneously would stop bribing,

是對他們多麼有好處。

and to make a long story short,

長話短說，

we managed to eventually

我們最終得以

get Germany to sign

使德國和

together with the other OECD countries

其他經濟合作發展組織的成員國

and a few other exporters.

以及一些其他的出口國

In 1997, a convention,

在1997年的一場會議上

under the auspices of the OECD,

在經濟合作發展組織的贊助支援下，

which obliged everybody

使所有參與者

to change their laws

改變法律

and criminalize foreign bribery.

使國際行賄犯罪化。

(Applause)

（觀眾掌聲）

Well, thank you. I mean, it's interesting,

謝謝大家，我覺得這蠻有趣的，

in doing this,

做這件事的時候，

we had to sit together with the companies.

我們必須跟這些公司坐在一起。

We had here in Berlin, at the Aspen Institute on the Wannsee,

我們在柏林的山楊協會

we had sessions with about

和20個企業大首腦

20 captains of industry,

開了幾次會，

and we discussed with them

我們和他們討論了

what to do about international bribery.

如何應對國際行賄的問題。

In the first session -- we had three sessions

我們一共有三個跨時兩年的會議

over the course of two years.

在第一個會議裡

And President von Weizsäcker, by the way,

一個來自馮·魏茨澤克的主席

chaired one of the sessions, the first one,

主持了第一個會議

to take the fear away

以消除企業家們

from the entrepreneurs,

的恐懼

who were not used to deal

因為他們不習慣與

with non-governmental organizations.

非政府組織打交道。

And in the first session, they all said,

在第一個會議裡，他們都說，

"This is not bribery, what we are doing." This is customary there.

他們做的不是行賄。那是個習俗。

This is what these other cultures demand.

那是其他的文化所要求的。

They even applaud it.

他們甚至贊許這種行為。

In fact, [unclear]

事實上，有人

still says this today.

到如今還堅持這樣的觀點。

And so there are still a lot of people

並且還有很多人

who are not convinced that you have to stop bribing.

不相信別人已經停止了行賄。

But in the second session,

但是在第二次會議裡，

they admitted already that they would never do this,

他們已經承認他們再也不會這樣做了，

what they are doing in these other countries,

不會再做這些發生在其他國家，

here in Germany, or in the U.K., and so on.

如德國、英國等等的事了。

Cabinet ministers would admit this.

內閣部長們承認了這一點。

And in the final session, at the Aspen Institute,

在最後一個會議裡，在山楊協會，

we had them all sign an open letter

我們讓他們所有人都簽署了一封

to the Kohl government, at the time,

給那時的科勒政府的公開信，

requesting that they

要求參與到

participate in the OECD convention.

經濟合作與發展組織協定裡來。

And this is, in my opinion,

這在我心中

an example of soft power,

是一種軟實力的體現，

because we were able to convince them

因為我們能夠讓他們確信

that they had to go with us.

他們必須跟我們統一戰線。

We had a longer-term time perspective.

我們有更長遠的目光。

We had a broader,

我們要維護

geographically much wider,

區域上更寬廣的

constituency we were trying to defend.

群體利益。

And that's why the law has changed.

這就是為什麼法律被改變了。

That's why Siemens is now in the trouble they are in

這就是為什麼西門子現在遇到了麻煩。

and that's why MIN is in the trouble they are in.

這就是為什麼MIN現在碰到了棘手的事。

In some other countries, the OECD convention

在一些其他國家裡，經濟合作與發展組織協定

is not yet properly enforced.

還沒有被真正地有力實施。

And, again, civil societies

我重申，公民社會

breathing down the neck of the establishment.

緊盯著當局的一舉一動。

In London, for instance,

比如在倫敦，

where the BAE got away

BAE從一件

with a huge corruption case,

巨大的貪腐弊案中僥倖逃脫刑責

which the Serious Fraud Office tried to prosecute,

懲治詐騙辦公室曾嘗試起訴他們。

100 million British pounds,

每年十億英鎊的賄款，

every year for ten years,

十年以來，

to one particular official of one particular friendly country,

被送給了某個友好國家的某個官員

who then bought for

於是這個官員

44 billion pounds of military equipment.

買了他們440億英鎊的軍備。

This case, they are not prosecuting in the UK.

在這個案例裡，他們在英國並沒有被起訴。

Why? Because they consider this

為什麼？因為當局認為

as contrary to the security interest

這與英國人民的

of the people of Great Britain.

安全利益相衝突。

Civil society is pushing, civil society

公民社會正在推動，

is trying to get a solution to this problem,

正在嘗試尋找一個解決方案

also in the U.K.,

在英國

and also in Japan, which is not properly enforcing,

也在日本，那裡的對外行賄也沒有被好好控制，

and so on.

等等。

In Germany, we are pushing

在德國，我們正在推動

the ratification of the UN convention,

簽署聯合國協定的進程。

which is a subsequent convention.

這是一個後續的協定。

We are, Germany, is not ratifying.

德國沒有簽認。

Why? Because it would make it necessary

為什麼？因為簽署了它就相當於

to criminalize the corruption

使懲罰代理人受賄

of deputies.

成了必須的事。

In Germany, we have a system where

在德國的系統裡，

you are not allowed to bribe a civil servant,

你不能夠賄賂一位公務員，

but you are allowed to bribe a deputy.

但是可以賄賂一位代理人。

This is, under German law, allowed,

這是被德國法律所允許的。

and the members of our parliament don't want to change this,

議會成員不想改動這一點，

and this is why they can't sign

這就是為什麼德國不能簽署

the U.N. convention against foreign bribery --

聯合國反對外行賄協定的原因。

one of they very, very few countries

這是世界上極少數的

which is preaching honesty and good governance everywhere in the world,

講究道德、好管理的的國度之一，

but not able to ratify the convention,

但是它不能簽署這份

which we managed to get on the books

通過我們努力，

with about 160 countries all over the world.

有大約160個國家簽署了的協定。

I see my time is ticking.

我看見我的時間所剩不多了，

Let me just try to

讓我就試著

draw some conclusions from what has happened.

總結一下發生的事。

I believe that what we managed to achieve

我相信我們在

in fighting corruption,

與腐敗的鬥爭中取得的，

one can also achieve

也可以在

in other areas of failing governance.

政府失能的其他領域中取得。

By now, the United Nations

現在，聯合國

is totally on our side.

已經完全和我們站在了一邊。

The World Bank has turned from Saulus to Paulus; under Wolfensohn,

世界銀行已在Wolfensohn領導下從Saulus轉向Paulus，

they became, I would say, the strongest

也成為了，我敢說，

anti-corruption agency in the world.

世界上最強的反腐敗組織。

Most of the large companies

絕大多數的大公司

are now totally convinced

現在已經完全確信

that they have to put in place

他們需要

very strong policies

執行很強的政策

against bribery and so on.

以防腐敗等等。

And this is possible because civil society

這是可能做到的，因為公民社會

joined the companies

加入了公司

and joined the government

也加入了政府

in the analysis of the problem,

一起分析問題

in the development of remedies,

推出糾正方法

in the implementation of reforms,

執行改革

and then later, in the monitoring of reforms.

並在之後，監督改革。

Of course, if civil society organizations

當然，如果公民社會

want to play that role,

想要參與進來，

they have to grow into this responsibility.

就得有足夠的責任感。

Not all civil society organizations are good.

不是所有的民權社會組織都是造福人類的。

The Ku Klux Klan is an NGO.

3K黨也是個非政府組織呢。

So, we must be aware

所以，我們必須意識到

that civil society

民權社會

has to shape up itself.

要不斷改良自身。

They have to have a much more

他們有一個

transparent financial governance.

透明度高得多的財政管理。

They have to have a much more participatory governance

他們有一個參與度高得多的管理。

in many civil society organizations.

在很多公民社會組織裡都是如此。

We also need much more competence of civil society leaders.

我們也需要更勝任的公民社會領袖。

This is why we have set up the governance school

這就是為什麼我們在柏林建立了管理學校

and the Center for Civil Society here in Berlin,

以及公民社會中心。

because we believe most of our educational

因為我們相信大多數教育以及

and research institutions in Germany

研究協會，在德國

and continental Europe in general,

和歐洲大陸，從大體上來說，

do not focus enough, yet,

都還不夠集中重視

on empowering civil society

發展和培育

and training the leadership of civil society.

公民社會的力量。

But what I'm saying from my very practical experience:

但是，從我非常實際的經歷看來，

If civil society does it right

如果公民社會做得好，

and joins the other actors --

並與其他成員齊心協力，

in particular, governments,

尤其是與政府，

governments and their international institutions,

政府和他們的國際機構，

but also large international actors,

那些活躍在國際舞臺上的成員，

in particular those which have committed themselves

尤其是那些致力於

to corporate social responsibility --

企業社會責任感的人們，

then in this magical triangle

那麼，在這個

between civil society,

公民社會、

government and private sector,

政府和私營部門形成的神奇三角裡，

there is a tremendous chance

就會有巨大的可能性，

for all of us to create a better world.

使我們一起創造出一個更美好的世界。

Thank you.

謝謝。

(Applause)

（掌聲）