联合国助理秘书长徐浩良在“变革中的全球治理”国际会议上的演讲（中英对照）

Why should China use the UN?  How would that benefit China, especially as we move forward, making every effort to achieve the MDGs by 2015 and going forward with a Post-2015 development agenda? UNDP’s Strategic Plan for 2014-2017, recently approved by our Executive Board, has a good discussion of this question.  It states that UNDP is:

中国为何需要借力于联合国？这将如何使中国受益？尤其现在中国正在努力完成2015年千年发展目标，并向2015年后的发展议程继续前进。联合国开发计划署执行委员会近期批准了2014年至2017年的战略计划。该战略计划对上述问题进行了有价值的探讨，并将联合国开发计划署定义为：

a) Recognized as being neutral, able to act as an impartial facilitator of dialogues and cooperation on important development issues,

a）一个公认的中立方，在重要发展议题的对话和合作上是一个公正的推进者，

b) Trusted due to long-standing relationships at the country level, maintained through good times and bad;

b）在国家层面上是具有长期合作的可信赖的伙伴，并在繁荣期和萧条期维持此关系；

c) Able to draw on knowledge and expertise gained in all development settings, thus, able to grasp and respond flexibly to common concerns and important differences between countries and regions;

c）运用所有发展领域上的专业知识，并能够在不同国家与地区的普遍共性和重要区别上灵活应对；

d) Geared to address development issues as they actually exist – complex, multi-dimensional and often unique to each society;

d）有能力对实际的发展问题做出应对，包括复杂的、多边的和在各个社会系统中具独特特点的发展问题；

e) Acknowledged as a partner who can advise on the “big” issues of economic and social transformation, environmental sustainability and democratic governance, as well as help develop the plans and capacities to deliver on them;

e）一个能够在关键的经济、社会转型、环境可持续发展和民主治理等议题上提出建议的合作伙伴，为这些问题提供解决方案和能力建设；

f) Seen widely as having a strong operational capability, deployable in widely varying conditions; and

f）有强大的运营能力，能适应多种多样的条件；

g)  Positioned to tap the assets of the UNDS to support countries in their development efforts

g）充分利用联合国开发系统的资源，支持其他国家的发展。

These comparative advantages clearly offer China ways to account for its contributions and value for money.  In the context of China, working with the UN also helps the Chinese assistance to take advantage of the standards and systems that the UN uses,, improving Chinese capabilities over time and reducing the criticisms we see in the press from time to time. China should see the UN development system as a resource.  This is the case not only for humanitarian assistance.  I would argue it is the same for development cooperation.  The challenge is to find ways that are suitable for China, for both sides to agree on the UN’s value added, and to build confidence through pilot initiatives.  I am happy to note that UNDP and MOFCOM have made significant progress in these directions.

很明显，上述联合国开发计划署的比较优势可以帮助确保中国的贡献和援助资金更可靠并且更有价值地得到使用。与联合国合作还有助中国的对外援助有效的利用联合国使用的一系列标准和制度，提高中国的能力，并且减少我们不时在媒体中看到的对中国的批判。中国应当把联合国发展系统视为一种资源。我认为这并不仅是在人道主义援助方面的议题，在发展合作上也是如此。现在的挑战是：需要找到适宜中国的合作方式，双方对联合国的附加值有共同的认可，同时通过试点建立对联合国的信心。我很高兴联合国开发计划署和中国商务部在此方向上已取得显著进展。

Let’s have a quick look at how traditional donors have used the multilateral channels for their bilateral aid, based on their assessment of the effectiveness and efficiency of the agencies.  Based on our analysis of OECD’s data, for Japan, about 40% of its aid is delivered through multilateral channels; for the UK it’s 37%, South Korea 26%, the USA 17%, and for all DAC country assistance it’s 30%.

我们来简略地看看传统援助国是如何根据机构的效益和效率来使用其多边渠道帮助它们执行双边援助。根据我们对经济合作与发展组织数据的分析，在日本，约40%的援助是通过多边渠道进行，在英国则是37%，韩国为26%，美国为17%，经济合作与发展组织国家发展援助委员会的平均值为30%。

One issue that I often see is China’s reluctance to participate in country level development dialogues, in countries where China is providing development assistance.  Why is this the case?  The principles stated in China’s White Paper may provide partial answers.  China may see these efforts as part of the aid effectiveness effort of Paris and Busan, to which China does not fully subscribe to.  China may also believe that its aid activities are already coordinated with the host government and see no need to go to the forums and talk about them. China may have overlooked, however, a) these development dialogues are always hosted or co-hosted by the host governments; b) while China has indeed coordinated with the host governments, most other development partners don’t know about China’s plans; lack of information gives rise to speculation of China’s intentions; c) China is missing an opportunity to let other partners know its objectives, policies, and contributions and to project China as a more results-oriented and constructive development partner, that it is.  In my view, China’s positions on aid effectiveness should not prevent China from actively participating in multilateral dialogues at country level.  UNDP is always associated with these dialogues and is always ready to offer insights if required.

在中国提供发展援助的国家中，一个常见的问题是中国并不积极参与国家层次的多边发展对话。为什么会这样？中国白皮书中提及的一些原则或许能提供部分解释。中国可能视这些为中国并不完全赞同的巴黎或釜山进程有关援助效率方面的努力的一部分。中国也可能认为，其援助活动已经充分与东道国政府协作，无须通过多边论坛来进一步讨论。然而，中国很可能忽略了一些细节：a）这些发展对话毫无例外是由东道国政府主办或协办； b）虽然中国确实与东道国政府已有协调，但大多数的其他合作伙伴并不了解中国的计划，信息的缺失又往往会导致各方对中国意图的猜疑；c）中国错失了让其他合作伙伴了解其目标、政策、贡献的机会，以及将中国打造成一个结果导向的、富有建设性的发展伙伴的机会。在我看来，中国在援助效率问题上的立场不应该阻碍其积极参国家层次的多边对话。联合国开发计划署一直以来都与这些对话有着密切的联系，并随时愿意着为中国提供一切所需的支持。

As China becomes more and more confident in multilateral fora, it needs to build a cadre of professionals who are familiar with evolving rules of engagement and practices of multilateral assistance.  Most of China’s assistance will continue to be delivered bilaterally.  Both bilateral and multilateral assistance will require China to have qualified people as well institutions that are fit for purpose.  For people, the UN offers a fertile ground for training for China’s young and aspiring.  This will, in fact, help increase the number of Chinese working in the UN as well as cultivate a group of young professionals in the government who are familiar with international practices and know the UN’s organizational culture.  The total number of Chinese working in the UN Secretariat system is about 460, or 1.09% of the workforce, not commensurate with China’s proportion of membership dues.  Of the 460, about 35% or 160 are non-language related specialists or are managers, with 10 or so at senior level (D1 and above).  All other Security Council members have far more staff than China, including at senior levels.

随着中国在多边场合中自信日益增进，中国需要打造一支专业的、熟悉不断变化的参与规则和多边援助实践的精英队伍。中国的援助大部分仍将在双边领域展开。双边和多边援助都要求中国具备符合条件的人才和有效的机构。在人才方面，联合国能提供丰富的培养中国青年志士的土壤。事实上，这也将有助于增加联合国机构内中国工作人员的数目， 并且在政府中培养一批熟悉国际实践、了解联合国组织文化的年轻专业人员。目前，在联合国秘书处系统中工作的中国人共有460名，仅占整个联合国职员的1.09%，与中国缴纳的联合国会费不成比例。在现有的460人中，仅约有35%（160人）是非语言类的专员或管理人员，其中仅10人左右达到了高层（D1及以上级别）。所有其他安理会成员国的工作人员都远远多于中国，包括在联合国高层。

UNDP runs a Young Professional Programme, or JPO Programme, for training young professionals (P1/P2 levels).  UNDESA runs a similar programme for the Secretariat.  They are funded by primarily OECD countries to support their young people to work in the UN.  In the past, the resistance is often its cost.  But today, the difference between the cost of JPOs and the compensations of Chinese diplomats working overseas has narrowed significantly.  The Chinese Government has the ability to finance a JPO programme but needs to be convinced of its value.  The experience of Japan is instructive.  Japan supported nearly 300 JPOs over the past 10 years in different UN agencies, with most in UNDP and the rest in other agencies.  Typically, 50% of JPOs stay and others go to the government or the private sector.  Over the past decade, the number of Japanese staff in UNDP increased significantly thanks to its JPO programme.  Nigeria has seen the value of the JPOs and has decided to fund its own JPO programme.  We are in the process of recruiting the first batch

联合国开发计划署目前设有一个初级职业官员项目（Junior Professional Officer，简称JPO项目），以培养年轻的专业人员（P1/P2级别）。联合国经济和社会事务局为秘书处设立了相似的项目。这些项目主要由经合组织成员国资助，用以支持本国年轻人在联合国工作。过去，中国因各种原因包括成本问题而没有加入。而如今，中国驻外外交官的费用已经与JPO的成本不相上下。中国政府完全有能力对自己的JPO项目提供财政支持，但需要认识JPO项目的价值。这里，日本的经验值得借鉴。 在过去10年中，日本支持了近300名JPO官员到联合国各机构工作，其中一大部分在开发计划署。统计数字表示约50%的JPO官员会留在联合国，其他则会进入政府或私营部门。过去十年中，由于JPO项目的支持，日本在开发计划署的职员人数有了显著地增长。尼日利亚也看到了JPO的价值，并决定资助其本国的JPO项目。我们目前正在招聘尼日利亚的第一批JPO。

My point is to say that China needs a generation of young people to bring China’s aid to a new level.  The UN, as well as the WB and other multilaterals, can help.  The UN has YPP, UNDP has a new plan targeting recruitment of P3/P4 level trainees.  UNDP also has a secondment programme with MOFCOM.   These are win-win initiatives, benefiting both China and the UN and helps to enhance China’s voice and soft power.   But it takes time to see the result.  The time to act is now.

我要说的是，中国需要新一代年轻人，把中国的对外援助带领到一个新的高度。对此，联合国、世界银行以及其它多边组织可以提供相应的帮助。联合国有一个青年专业计划考试，联合国开发计划署也正在考虑实施招募更多P3/P4等级别员工的新计划。联合国开发计划署还与中华人民共和国商务部建立了工作借调合作。诸如此类的合作无论对于中国还是联合国都是双赢的，并且能够提高中国的话语权以及软实力。但是一切成效都需要时间的检验，我们必须从现在就行动起来。

I believe there is a need to review the institutional set-up as well.  As I argued earlier, there is a question who will argue for more multilateral development assistance.  I also have an impression that perhaps too many Chinese institutions are involved in providing development assistance, not able to have policy coherence and achieve real impact.  In most countries I have seen, external assistance is more centralized in a much smaller number of core institutions.  A related question is how to differentiate aid with trade and investment and, sometimes, how to mix aid with trade and investment.  You will need very different institutions and experiences to achieve this.

我相信现在需要对于制度层面进行重新评估。正如我之前所提到的，当下的问题是谁能站出来争取更多的多边发展援助。于此同时，也许提供援助的中国机构数量太多，它们不能很好地协调合作，不能产生实际的影响力。而在我所知的大多数国家中，外援更多地由少数几个核心机构负责。相应的问题是如何把贸易投资和发展援助区分开来；另外，如何在某些情况下提供贸易性和投资性的援助。若想要实现这一点，则需要不同的机构和经验。

There are many issues that China cannot tackle alone.  Teaming up with the UN, UNDP included, will allow China to achieve regional impact, e.g. SIDS, LDC graduation, Middle Income Traps, etc.  Due to time limitations, we will have to leave this to the next conference.

如今，很多挑战仅凭中国的一己之力是难以解决的。通过与联合国——包括联合国开发计划署——的合作，中国将有能力实现其区域影响力，例如：如何应对小岛与发展中国家、不发达国家转型，中等收入陷阱等一系列问题。由于时间关系，希望在下次的会议上，我们能够得到所期望的答案。

The UN is committed to working with China to explore new partnerships and areas for deeper cooperation.  It’s in China’s interest to review how China can leverage multilateral approaches to enhance China’s reputation and position as a global leader for development and a responsible stakeholder of the international system.  China needs to invest in its young people now to build a generation of professionals who can manage and deliver China’s assistance programme more effectively in the future.  The time to act ambitiously is now.

联合国致力于与中国合作，共同探索新的合作机会和更深层的合作。重审中国多边援助的途径，以加强中国作为国际发展领袖和国际体系中负责任的大国的声誉和地位，将对中国大有裨益。现在，中国需要更多地投资于年轻人，为将来建立一代能够管理并执行中国未来援助项目的专业人员。积极行动，更待何时！

Thank you very much.

非常感谢。