我國政府開發援助永續性探討：以史瓦帝尼烏蘇杜河下游小農灌溉計畫為例

Abstract

在臺灣特殊外交困境下，「政府開發援助」（Official Development Assistance, ODA）成為爭取外交空間與穩定邦交的重要手段。ODA意指由政府提供資金、物資或技術，協助受援國在經濟、社會、人力資源之發展，或對遭受天然災害國家或國際難民提供人道協助。然而ODA因資訊不盡透明，而且不易評估其資金效益，一般社會大眾難以了解，更遑論對執行者之信賴。為了評估臺灣ODA執行成效，本研究針對臺灣官方援助機構「財團法人國際合作發展基金會（國合會）」亦介入之史瓦帝尼(原名史瓦濟蘭)「烏蘇杜河下游小農灌溉計畫」（Lower Usuthu Small Holder Irrigation Project, LUSIP I，該計畫分兩期，國合會僅介入第一期），探討ODA之成果以及永續性（Sustainability）指標之適用性。 透過文獻回顧發現，永續性涵括為三大構面：「經濟」、「社會」與「環境」。就國合會對於LUSIP I事後評核的內容得知，與其他開發銀行一樣，我國ODA僅重視計畫在經濟與社會上的表現，對環境議題則較少著墨。此外，國際上常用的指標雖然可以呈現在「援助」上的效益，但難以評估臺灣ODA對「外交」的幫助。因此建議國合會永續性指標應強化「環境」構面的檢視，以及在「社會」構面納入更多與臺灣外交目的相關的指標，以便更精準展現臺灣ODA計畫績效。

In view of Taiwan’s diplomatic challenges, Official Development Assistance (ODA) has always been an important means for the nation in stabilizing its diplomatic relations. Taiwan’s ODA involves providing funds, materials or technology to assist recipient countries to promote economic development and social progress, and providing humanitarian assistance to nations suffering from natural disasters. However, as the information is not fully disclosed to the public, it is difficult for the citizen to trust the administration and supervision of Taiwan’s ODA. In order to assess the results of Taiwan's ODA, the Lower Usuthu Small Holder Irrigation Project in the Kingdom of Eswatini (LUSIP I), a project of the Taiwan’s official ODA agency “International cooperation and development fund (TaiwanICDF)” was evaluated to exploring the results of ODA and the applicability of Sustainability indicators. It is found that sustainability can be divided into three major aspects: economy, society and environment. Taiwan's ODA, like that of other development banks, tends to focus on economic and social performance rather than on environment. In addition, indicators commonly used can present the project’s performance in the “aid” aspect; however, it is difficult to assess its contribution to 'diplomacy.' Therefore, this study suggests that the sustainability indicator should strengthen the proportion of environmental factors and involve more indicators relative to Taiwanese diplomatic purpose to accurately evaluate the performance of Taiwan's ODA.