Sanjay Pradhan: How open data is changing international aid

Translator: Joseph Geni Reviewer: Morton Bast

譯者: Barcly Shih 審譯者: Geoff Chen

I grew up in Bihar, India's poorest state,

我在印度最貧窮的比哈省長大

and I remember when I was six years old,

還記得六歲的時候

I remember coming home one day to find a cart

放學回到家門口，看到一台推車

full of the most delicious sweets at our doorstep.

裡頭裝滿各式各樣的糖果餅乾

My brothers and I dug in,

我們兄弟興奮地塞了滿嘴的甜食

and that's when my father came home.

這時，爸爸回到家 看到我們做的好事

He was livid, and I still remember how we cried

氣得不得了 我們大哭特哭

when that cart with our half-eaten sweets

看他把我們吃一半的零食放回推車

was pulled away from us.

再把推車遠遠地推走了

Later, I understood why my father got so upset.

後來，我才知道爸爸有他的苦衷

Those sweets were a bribe

原來，糖果餅乾是行賄禮

from a contractor who was trying to get my father

來自一位承包商

to award him a government contract.

他希望爸爸把政府的合約給他

My father was responsible for building roads in Bihar,

父親負責比哈省的道路建置工程

and he had developed a firm stance against corruption,

把貪汙視為大忌

even though he was harassed and threatened.

即便受到脅迫也不為所動

His was a lonely struggle, because Bihar

但他孤立無援，畢竟比哈省

was also India's most corrupt state,

是印度貪污最嚴重的省分

where public officials were enriching themselves,

官員都忙著顧自己的荷包

[rather] than serving the poor who had no means

不管窮人死活

to express their anguish if their children

窮人缺乏管道向政府訴苦

had no food or no schooling.

根本無從解決孩子餓肚子、 沒有書可以念的窘境

And I experienced this most viscerally

我深刻體悟到這點

when I traveled to remote villages to study poverty.

是當我到偏遠村莊 研究貧窮問題的時候

And as I went village to village,

我到每個村莊一一探訪

I remember one day, when I was famished and exhausted,

有一天，我又餓又累

and I was almost collapsing

眼看體力就要不支

in a scorching heat under a tree,

天氣熱到差點在樹蔭底下昏過去

and just at that time, one of the poorest men in that village

這時，村裡一位非常窮的人

invited me into his hut and graciously fed me.

請我到他住的茅屋休息 還很殷勤地請我吃東西

Only I later realized that what he fed me

後來我才知道，他請我吃的食物

was food for his entire family for two days.

是全家兩天的食糧

This profound gift of generosity

他慷慨大方的致贈

challenged and changed the very purpose of my life.

迫使我重新思考人生的目標

I resolved to give back.

我決心回應他的好意

Later, I joined the World Bank, which sought to fight

我加入世界銀行的行列

such poverty by transferring aid from rich to poor countries.

世銀打擊貧窮的作法 是讓富有國家援助貧窮國家

My initial work focused on Uganda, where I focused

一開始，我把焦點放在烏干達

on negotiating reforms with the Finance Ministry of Uganda

與該國財政部協商 採取一連串改革措施

so they could access our loans.

讓他們能夠向世界銀行借貸

But after we disbursed the loans, I remember

但在我們借貸出去後

a trip in Uganda where I found newly built schools

有一次我去烏干達 訪查新落成的學校

without textbooks or teachers,

發現竟然沒有教科書和老師

new health clinics without drugs,

新醫院也缺乏救治的醫藥

and the poor once again without any voice or recourse.

窮人依舊孤立無援

It was Bihar all over again.

這簡直是比哈省的翻版

Bihar represents the challenge of development:

比哈省代表了 發展面臨的重大挑戰

abject poverty surrounded by corruption.

那就是貧窮人民遇上貪官汙吏

Globally, 1.3 billion people live on less than

全世界十三億人口的生活費

$1.25 a day, and the work I did in Uganda

是每天1.25美元

represents the traditional approach to these problems

我在烏干達做的努力 代表傳統上解決貧窮問題的途徑

that has been practiced since 1944,

這套作法始於1944年

when winners of World War II, 500 founding fathers,

當時的二戰戰勝國，派出500位男性代表

and one lonely founding mother,

和獨獨一位女性代表

gathered in New Hampshire, USA,

在美國新罕布什爾州召開會議

to establish the Bretton Woods institutions,

建構布列敦森林體系

including the World Bank.

世界銀行因而誕生

And that traditional approach to development

這套傳統上因應發展的作法

had three key elements. First, transfer of resources

有三個特點 第一是資源的轉移

from rich countries in the North

從富有的北方國家

to poorer countries in the South,

轉移資源到貧窮的南方國家

accompanied by reform prescriptions.

同時輔以改革的配套措施

Second, the development institutions that channeled

第二，負責轉移資源的機構

these transfers were opaque, with little transparency

組織架構不甚明朗

of what they financed or what results they achieved.

未清楚列出援助項目 以及所達成的效益

And third, the engagement in developing countries

第三，這些組織與開發中國家的互動對象

was with a narrow set of government elites

只限於少數政府菁英

with little interaction with the citizens, who are

缺乏和人民溝通

the ultimate beneficiaries of development assistance.

然而人民才是最終的受惠人

Today, each of these elements is opening up

時至今日，上述三個特點

due to dramatic changes in the global environment.

因應國際局勢大幅變遷 漸漸變得透明開放

Open knowledge, open aid, open governance,

這包括知識、援助、政府三個面向

and together, they represent three key shifts

這三項重大轉變

that are transforming development

徹底改變發展的模式

and that also hold greater hope for the problems

世銀變得更有潛力

I witnessed in Uganda and in Bihar.

解決我在烏干達 和比哈省看到的問題

The first key shift is open knowledge.

開放知識是第一個關鍵

You know, developing countries today will not simply

現在的開發中國家

accept solutions that are handed down to them

不會輕易領受他人給予的解決辦法

by the U.S., Europe or the World Bank.

不管是來自美國、歐洲 還是世界銀行

They get their inspiration, their hope,

他們學習的對象、對未來的展望

their practical know-how,

以及對一些專門技能的掌握

from successful emerging economies in the South.

都取經於南方國家的新興經濟體

They want to know how China lifted 500 million people

譬如說，他們想知道 中國如何讓5億人口

out of poverty in 30 years,

在30年內脫離貧窮

how Mexico's Oportunidades program

或是墨西哥的Oportunidades計畫

improved schooling and nutrition for millions of children.

如何改善數百萬 兒童的教育和營養問題

This is the new ecosystem of open-knowledge flows,

這是嶄新的開放知識生態系統

not just traveling North to South, but South to South,

知識不只從北到南流動 也在南方國家間互相交流

and even South to North,

甚或從南到北流動，都有可能

with Mexico's Oportunidades today inspiring New York City.

例如，紐約市就從墨西哥的 Oportunidades計畫獲益良多

And just as these North-to-South transfers are opening up,

隨著由北到南的知識流動日益蓬勃

so too are the development institutions

負責轉移資源的發展機構

that channeled these transfers.

也變得愈加開放

This is the second shift: open aid.

這就是第二個關鍵：開放援助

Recently, the World Bank opened its vault of data

最近，世界銀行開放資料庫

for public use, releasing 8,000 economic and social indicators

公開8千個社經指標

for 200 countries over 50 years,

資料內容涵蓋 200個國家過去50年的發展

and it launched a global competition to crowdsource

世銀還組織國際競賽

innovative apps using this data.

期望透過群眾外包的方式 激發群眾創意設計開發app

Development institutions today are also opening

時下的發展機構變得越來越透明

for public scrutiny the projects they finance.

供大眾審視其補助的計畫案

Take GeoMapping. In this map from Kenya,

以地理對應技術為例 這是肯亞的數據

the red dots show where all the schools financed by donors

紅點表示得到補助的學校

are located, and the darker the shade of green,

而顏色愈深的綠色

the more the number of out-of-school children.

代表未就學孩童的數量就愈多

So this simple mashup reveals that donors

這個簡單的圖表展示出

have not financed any schools in the areas

未就學孩童最多的區域中

with the most out-of-school children,

沒有一所學校得到援助

provoking new questions. Is development assistance

我們不禁要問： 為了發展做出的努力

targeting those who most need our help?

是否確實用在刀口上？

In this manner, the World Bank has now GeoMapped

世界銀行使用地理對應技術

30,000 project activities in 143 countries,

彙整143個國家中 3萬個計劃的執行狀況

and donors are using a common platform

贊助人也使用類似平台

to map all their projects.

檢視資助的計畫

This is a tremendous leap forward in transparency

這是一項空前的進步

and accountability of aid.

資訊變得更透明 我們更能確保援助的去向

And this leads me to the third, and in my view,

接著談第三個關鍵

the most significant shift in development:

在我看來 也是最值得注意的發展變遷

open governance. Governments today are opening up

便是開放政府 現在的政府越來越開放

just as citizens are demanding voice and accountability.

市民對民主自由、 政府負責的要求也越高

From the Arab Spring to the Anna Hazare movement in India,

該現象可從阿拉伯之春 到印度的海札瑞反貪腐運動略知一二

using mobile phones and social media

民眾使用手機和社群媒體

not just for political accountability

不只是監督政府負責

but also for development accountability.

也是為了達到永續發展的目標

Are governments delivering services to the citizens?

民眾想知道，政府是否對民眾盡責？

So for instance, several governments in Africa

譬如，一些非洲政府和東歐國家

and Eastern Europe are opening their budgets to the public.

把預算公開給民眾檢視

But, you know, there is a big difference between a budget

但你我都心知肚明

that's public and a budget that's accessible.

公開預算不代表誰都看得懂

This is a public budget. (Laughter)

這是公開預算 (笑聲)

And as you can see, it's not really accessible

如你所見，對於一般民眾

or understandable to an ordinary citizen

這真的不太好懂

that is trying to understand how the government is spending its resources.

民眾很難理解政府如何運用資源

To tackle this problem, governments are using new tools

為了解決這個問題 政府使用新的工具

to visualize the budget so it's more understandable

把預算表畫成圖表

to the public.

幫助大眾理解

In this map from Moldova, the green color shows

這張摩爾多瓦的地圖 綠色部分顯示出

those districts that have low spending on schools

教育花費低的行政區

but good educational outcomes,

卻有較好的教育效益

and the red color shows the opposite.

紅色部分則相反

Tools like this help turn a shelf full of inscrutable documents

類似的工具能把深奧難懂的文件

into a publicly understandable visual,

轉變成平易近人的圖示

and what's exciting is that with this openness,

更棒的是，透過這樣的開放作法

there are today new opportunities for citizens

市民有了嶄新的機會

to give feedback and engage with government.

給予政府意見，與政府展開互動

So in the Philippines today, parents and students

現在，菲律賓的家長和學生

can give real-time feedback on a website,

可以透過網站即時給予回應

Checkmyschool.org, or using SMS, whether teachers

如Checkmyschool.org 或使用簡訊

and textbooks are showing up in school,

監督老師出席授課 確保學生有教科書可以用

the same problems I witnessed in Uganda and in Bihar.

解決以前我在烏干達 和比哈省看到的問題

And the government is responsive. So for instance,

政府方面也做出回應

when it was reported on this website that 800 students

例如，過去在該網站 傳出有800位學生

were at risk because school repairs had stalled

其上課環境有安全之虞 因學校設備維修延宕

due to corruption, the Department of Education

背後的核心問題則是貪汙

in the Philippines took swift action.

聞訊，菲律賓教育部立刻有所行動

And you know what's exciting is that this innovation

這項振奮人心的革新

is now spreading South to South, from the Philippines

從南方國家之間流傳

to Indonesia, Kenya, Moldova and beyond.

從菲律賓到印尼、肯亞、 摩爾多瓦，甚至更遠的國家

In Dar es Salaam, Tanzania, even an impoverished

在坦尚尼亞的達累斯薩拉姆區

community was able to use these tools

即便是貧窮社區 都能使用這些工具

to voice its aspirations.

傳達自己的需求

This is what the map of Tandale looked like

這是坦尚尼亞Tandale鎮的圖表呈現

in August, 2011. But within a few weeks,

測繪時間是2011年8月

university students were able to use mobile phones

才過幾個禮拜 大學生透過手機

and an open-source platform to dramatically map

運用開放原始碼的平台

the entire community infrastructure.

全面繪製出整個社群的基礎建設

And what is very exciting is that citizens were then

更棒的是，市民可以透過這個平台

able to give feedback as to which health or water points

標出需要維修的醫院或引水點

were not working, aggregated

這些紅點

in the red bubbles that you see,

就代表需要維修的地點

which together provides a graphic visual

這樣的視覺呈現

of the collective voices of the poor.

得以匯聚窮人的心聲

Today, even Bihar is turning around and opening up

現在，比哈省也不斷改善 變得越來越開放

under a committed leadership that is making government

有賴於領導者投注心力

transparent, accessible and responsive to the poor.

使得政府益發透明 對人民的訴求回應更為迅速

But, you know, in many parts of the world,

然而世界上許多地方的政府

governments are not interested in opening up

不願與人民互動 不顧窮人的生計

or in serving the poor, and it is a real challenge

對於想要改變現狀的人來說

for those who want to change the system.

是莫大的挑戰

These are the lonely warriors

這些事孤獨奮鬥的勇士

like my father and many, many others,

像我爸爸，還有數不盡的人

and a key frontier of development work

發展工作其中的一個目標

is to help these lonely warriors join hands

就是協助這些人聯手互助

so they can together overcome the odds.

同心協力，克服困境

So for instance, today, in Ghana, courageous reformers

比如，今天，我在迦納看到 勇氣可嘉的改革人士

from civil society, Parliament and government,

他們來自公民社會、議會、政府

have forged a coalition for transparent contracts

站在同一陣線 維護油價契約透明化

in the oil sector, and, galvanized by this,

有志於改革的議員受到啟發

reformers in Parliament are now investigating dubious contracts.

開始著手調查可疑的契約

These examples give new hope, new possibility

這些人的努力 創造新的希望和可能性

to the problems I witnessed in Uganda

提供可行方案解決 我在烏干達看到的問題

or that my father confronted in Bihar.

或是爸爸在比哈省面臨的困境

Two years ago, on April 8th, 2010, I called my father.

兩年前，2010年4月8日 我打電話給爸爸

It was very late at night, and at age 80,

深夜，80歲的他

he was typing a 70-page public interest litigation

為了保護公共利益 正執筆寫一份70多頁的報告

against corruption in a road project.

揭露一項貪汙不法的公路工程

Though he was no lawyer, he argued the case in court

他本身不是律師，卻在隔天

himself the next day. He won the ruling,

親自出庭辯護，也贏得了判決

but later that very evening,

當天晚上

he fell, and he died.

卻摔了一跤而死

He fought till the end, increasingly passionate

他奉獻了一生 到死前還在奮鬥

that to combat corruption and poverty,

打擊貪汙和貧窮

not only did government officials need to be honest,

他知道只靠誠實的政府官員還不夠

but citizens needed to join together

更需要市民共同努力

to make their voices heard.

為自己的訴求發聲

These became the two bookends of his life,

他身為制定政策的上位者 不忘同時設身處地為人民著想

and the journey he traveled in between

他在這兩個極端來回奮鬥的旅程

mirrored the changing development landscape.

反映在持續發展 且不斷改變的環境上

Today, I'm inspired by these changes, and I'm excited

這些改變激勵了我

that at the World Bank, we are embracing

世界銀行的同仁也受到啟發

these new directions, a significant departure

我們採用的新思維

from my work in Uganda 20 years ago.

迥異於20年前 世銀在烏干達的作法

We need to radically open up development

發展需要全面開放

so knowledge flows in multiple directions,

一來，知識的流動 才不會侷限於單一方向

inspiring practitioners, so aid becomes transparent,

達到激勵各界人士的目的 二來，援助計畫也會變得透明

accountable and effective, so governments open up

變得可信、有效 三來，政府也跟著變得開放

and citizens are engaged and empowered

鼓舞市民參與討論

with reformers in government.

與政府的改革志士聯手合作

We need to accelerate these shifts.

我們要讓這三個開放趨勢加快腳步

If we do, we will find that the collective voices

成功的話，我們就能確實聽見

of the poor will be heard in Bihar,

全體窮人的心聲，無論來自比哈省

in Uganda, and beyond.

烏干達，還是其他國家

We will find that textbooks and teachers

我們就能確保學校裡的 教科書和老師不虞匱乏

will show up in schools for their children.

保障孩子的教育

We will find that these children, too,

我們就能確保這些孩子

have a real chance of breaking their way out of poverty.

擁有機會一舉脫離貧窮

Thank you. (Applause)

謝謝大家

(Applause)

(掌聲)