马语琴2025年9月23日2月，特朗普总统呼吁全面审查美国对联合国的资金支持及参与情况。 Eric Lee/The New York TimesAs President Trump threatened to slash American funding for the United Nations this spring, diplomats from around the world met privately at a lakeside resort in Switzerland to weigh painful spending cuts.今年春天，在特朗普总统威胁大幅削减美国对联合国的资金支持之际，来自世界各地的外交官在瑞士的一个湖畔度假地私下举行会晤，商讨痛苦的削减开支方案。One proposal hinted at the potential cost of America’s withdrawal: What if the United Nations cut funding for human rights investigations?其中一项提议暗示了美国撤回支持可能导致的代价：如果联合国削减对人权调查的资助，会发生什么？The ambassadors of China and Cuba, which have long faced scrutiny over their own rights records, were the ones pushing to limit inquiries into government-sanctioned abuses like torture, war crimes, and jailing of dissidents, according to two diplomats who attended the meeting of the Human Rights Council in May in Switzerland.据两位参加了5月在瑞士召开的联合国人权理事会会议的外交官透露，中国和古巴的大使提议限制对政府主导的侵权行为的调查，比如酷刑、战争罪和监禁持不同政见者。长期以来，这两个国家都因人权纪录而受到国际社会的关注。Over the past few months, those nations, along with others that have a history of imprisoning dissidents like Iran, Russia and Venezuela, have repeatedly suggested scaling back human rights investigations, citing the need to save money, the two diplomats as well as two human rights activists said.这两名外交官以及两名人权活动人士说，过去几个月里，中国、古巴以及伊朗、俄罗斯和委内瑞拉等其他有监禁异见人士历史的国家多次以省钱为由建议缩减人权调查。Since taking office, Mr. Trump has upended the operations of the United Nations by withdrawing from the Human Rights Council and other agencies, freezing funding for others, and ordering a sweeping review of America’s involvement in the global body. The United States hosts the U.N. headquarters in New York City and has long been its largest donor.自上任以来，特朗普退出人权理事会和其他机构、冻结对部分机构的资助，并下令对美国参与这个全球性机构的情况进行全面评估，这一系列行为扰乱了联合国的运作。美国纽约是联合国总部所在地，并且长期以来一直是该机构最大的捐助国。While the White House has not yet announced the results of its review, it has clawed back $1 billion in funding for the U.N. and informed Congress of its intent to slash another $1 billion, adding to a funding shortfall at the United Nations. Earlier this week, senior U.N. officials proposed broad funding cuts, including to human rights programs, according to a document obtained by The Times.尽管白宫尚未宣布评估结果，但美国已经削减了10亿美元的对联合国资助，并通知国会打算再削减10亿美元，这加剧了联合国的资金缺口。本周早些时候，据《纽约时报》获得的一份文件显示，联合国高级官员提出了广泛的经费削减方案，其中包括人权项目。World leaders will be watching closely for further announcements as President Trump addresses the U.N. General Assembly at its annual gathering in New York next week.本周，特朗普总统将在纽约的联合国年度大会上发表讲话，世界各国领导人将密切关注他是否会有进一步的表态。U.N. critics within and outside the Trump administration argue that the United Nations is a wasteful, ineffective bureaucracy biased against American interests, and that bodies such as the Human Rights Council do more to legitimize governments that commit abuses than improve conditions on the ground.特朗普政府内外的一些联合国批评者认为，这是一个浪费、低效且对美国利益抱有偏见的官僚机构，他们还指出，像人权理事会这样的机构在改善实地状况方面成效不彰，反而更多地为侵犯人权的政府提供了合法性。But those who defend the United Nations as one of the few organizations that can shine a light on injustices say the Trump administration’s retreat is emboldening authoritarian nations to reshape the United Nations to their advantage, interviews with two dozen diplomats and officials and a review of internal and other documents reveal.联合国捍卫者们认为，该组织是少数能够揭露世界不公的平台之一。他们指出，特朗普政府的撤退正助长威权国家的气焰，这些国家试图利用这一机会，将联合国改造为对自身有利的工具——通过对数十位外交官、官员的采访以及对内部文件等资料的审阅表明了这一点。美国长期以来一直是联合国最大的捐助国。特朗普政府冻结了部分资金。Qatar, with its history of labor abuses, is offering to host some of the offices of the U.N. workers’ rights agency. Russia has proposed cutting speaking time for advocacy groups to save money on hearings. Eritrea has called for an end to a U.N. investigation into human rights abuses there.有劳工权益不良记录的卡塔尔提出愿意为联合国工人权利机构提供部分办公地。俄罗斯提议缩短倡导团体在听证会上的发言时间以节省开支。厄立特里亚则呼吁终止联合国对其境内侵犯人权行为的调查。The countries are “using every opportunity, including the opportunity presented by the liquidity crisis and at high-level meetings, to try and advance their agenda,” said Phil Lynch, the executive director of International Service for Human Rights, a nongovernmental group focused on U.N. advocacy in Geneva. “Cuts are on the table, and it opens a window of opportunity for them.”这些国家“正在利用一切机会，包括资金危机和高级别会议所带来的机遇，尝试来推进他们的议程”，专注于在日内瓦进行联合国倡导工作的非政府组织“国际人权服务社”的总干事菲尔·林奇指出。“削减（经费）方案已被摆上台面，这为他们打开了一扇机会之窗。”The State Department said in a statement that the Trump administration’s review “seeks to ensure that the United States is more effective in promoting the safety, security, and prosperity of America, not less” and that the department would not comment on the process until it had concluded.美国国务院在一份声明中说，特朗普政府的审查“旨在确保美国在促进本国的安定、国家安全与繁荣方面更具成效，而非相反”，在评估结束前，不会对这一过程发表评论。The budget cuts being discussed by the United Nations are widely perceived as a response to Mr. Trump’s actions. But Farhan Haq, the U.N.’s deputy spokesman, said the budget overhaul was part of an ongoing effort to make the organization more agile and efficient.联合国正在讨论的预算削减方案被广泛视为对特朗普行动的回应。但联合国副发言人法尔汉·哈克表示，这次预算改革是该组织为提升灵活性和效率而进行的一项持续努力的一部分。The Cuban, Eritrean, Russian and Qatari missions to Geneva did not respond to requests to comment.古巴、厄立特里亚、俄罗斯和卡塔尔驻日内瓦的使团没有回应置评请求。The Chinese Embassy in Washington said in a statement that it opposed “attempts by certain countries to politicize” human rights. “China has never intended to challenge or replace the United States,” the embassy said.中国驻华盛顿大使馆在一份声明中表示，反对“某些国家将人权问题政治化的企图”。声明还说：“中国从未意图挑战或取代美国。”A Power Vacuum, and the Scramble to Fill It权力真空与竞相填补The world once relied on American money and leadership to address global problems like pandemics, forced labor and poverty.过去，世界依赖美国的资金和领导力来应对大流行病、强迫劳动和贫困等全球性问题。Now many groups are considering new patrons like China and Qatar, governments that are seeking to remake oversight of human rights and labor conditions.现在，许多组织正在考虑新的资助者，比如中国和卡塔尔——这些国家正寻求重塑对人权和劳工状况的监督机制。The United Nations had already been facing a fiscal crisis for years. Its office in Geneva has cut back on meeting time and interpretation services and even closed for weeks at a time.联合国多年来一直面临财政危机。其日内瓦办事处已削减了会议时间和口译服务，甚至一度连续数周关闭。The United States is charged 22 percent of the U.N.’s $3.72 billion regular budget, and Washington has also provided billions annually in additional contributions to U.N. peacekeeping and other U.N. agencies, funds, and programs. The White House has argued that the funding doesn’t serve U.S. interests.美国承担了联合国37.2亿美元常规预算的22%，此外华盛顿每年还为联合国维和行动及其他联合国机构、基金和项目提供数十亿美元的额外资助。白宫认为，这些资金并没有为美国利益服务。联合国日内瓦办事处所在地万国宫。该组织正计划将更多办事处迁出纽约和日内瓦。Opponents of U.N. engagement point to China’s seat on the Human Rights Council, which has criticized the United States for practices like separating migrant families.反对美国参与联合国事务的人士指出，中国在人权理事会中拥有席位，而该机构曾批评美国分离移民家庭等做法。“There is scant evidence of the council improving human rights, but much evidence of governments elected to the council using it to shield themselves from scrutiny,” said Brett D. Schaefer, a senior fellow at the American Enterprise Institute in Washington.“几乎没有证据表明该理事会改善了人权，反而有大量证据表明，当选理事会的政府利用它来屏蔽对自身的审查，”华盛顿美国企业研究所的高级研究员布雷特·D·谢弗表示。Mr. Trump withdrew from the rights council and the World Health Organization earlier this year and from the United Nations Educational, Scientific and Cultural Organization, the first U.N. agency to undergo a review, on July 22.今年早些时候，特朗普让美国退出了人权理事会和世界卫生组织，并于7月22日退出联合国教科文组织，这是首个接受评估的联合国机构。The Trump administration’s wariness of international bodies has only made the United Nations’ cash crunch worse: Some U.N. agencies in Geneva stand to lose as much as 40 percent of their funding.特朗普政府对国际机构的戒心只会让联合国的资金危机雪上加霜：日内瓦的一些联合国机构可能会损失高达40%的资金。U.N. leaders asked departments in May to find budget cuts and consider relocating some positions from New York and Geneva to cheaper cities. The Geneva office proposed ending the lease early on the building that houses the U.N.’s human rights arm. And the U.N. department that provides rations to peacekeeping troops has proposed slashing their daily calories from 4,500 to 3,250, in an internal presentation obtained by The New York Times.联合国高层在5月要求各部门提出削减预算的方案，并考虑将部分岗位从纽约和日内瓦迁往成本更低的城市。日内瓦办事处提议提前终止人权事务机构所在大楼的租约。根据《纽约时报》获得的一份内部报告，负责向维和部队提供口粮的联合国部门已提议将每日热量摄入从4500卡路里削减至3250卡路里。The financial squeeze has also led to proposals to relocate the offices of agencies, which could expand the influence of the new countries hosting them.财政紧缩还引发了将机构办公室迁址的提议，这可能扩大新东道国的影响力。Qatar sent a large delegation to Geneva, offering to house parts of several U.N. groups, according to diplomats briefed on the visit. Over the past few months, leaders at the International Labor Organization, a U.N. agency, have met repeatedly with Qatari diplomats, a review of records shows. Its director general has reportedly said he is considering moving some staff members to Doha, despite an earlier controversy over Qatari funding of the agency and criticism of the country’s treatment of migrant workers.据了解此次访问情况的外交官透露，卡塔尔已向日内瓦派出大型代表团，提议为多个联合国机构的部分部门提供办公场地。记录显示，过去几个月里，联合国下属机构国际劳工组织的负责人与卡塔尔外交官多次会面。有报道称，尽管此前卡塔尔对该机构的资助引发争议，该国对待移民工人的方式也受到批评，但该机构总干事仍在考虑将部分工作人员迁至多哈。The labor organization declined to comment on its relocation plans or discussions with Qatari officials.国际劳工组织拒绝就其搬迁计划或与卡塔尔官员的磋商置评。2018年，最后建设阶段的卡塔尔多哈阿尔瓦克拉体育场。卡塔尔曾因对待移民工人的方式遭到批评，该国提议为部分联合国机构提供办公场所。Rwanda, where the government has faced criticism for backing rebels in the Democratic Republic of Congo, is also interested in hosting a “long-term U.N. campus,” according to a letter from its prime minister obtained by The Times. The rebels have been widely accused of human rights abuses including unlawful executions, rape and other war crimes. (The letter was earlier reported by Nile Post, a Uganda-based news site.)《纽约时报》获取的卢旺达总理信函显示，卢旺达有意承接“联合国长期园区”，尽管该国政府因支持刚果民主共和国境内叛军而受到批评。这些叛军被广泛指控犯有侵犯人权行为，包括法外处决、强奸及其他战争罪行。（该信函内容此前由乌干达新闻网站尼罗河邮报率先报道。）Mr. Haq, the U.N. deputy spokesman, said that the organization does not typically disclose communications from member states and that any relocations “will be done in a phased manner,” with approval from U.N. member states. The Rwandan mission to New York did not respond to a request to comment.联合国副发言人哈克表示，联合国通常不公开与成员国的沟通内容，任何搬迁工作都将“分阶段进行”，并需获得联合国成员国批准。卢旺达驻纽约代表团未回应置评请求。China, which has long sought a greater role in the United Nations, is expanding its sway in multiple bodies. In May, months after Mr. Trump withdrew from W.H.O., China sent a vice premier to the W.H.O. assembly and said it would provide $500 million in funding over five years.中国长期寻求在联合国发挥更大作用，如今正扩大其在多个机构中的影响力。今年5月，在特朗普退出世界卫生组织数月后，中国派出一名副总理出席世卫组织大会，并宣布将在五年内提供5亿美元资金。The health body has been accused of letting Beijing steer its search for the origins of the pandemic, instead of pushing for a more thorough inquiry in the country, a charge that both the Chinese embassy and W.H.O. deny. The new outlay could give Beijing more influence in the organization.有人指控世卫组织任由中国主导新冠疫情溯源调查，而非推动在中国开展更彻底的调查，但中国大使馆与世卫组织均否认这一指控。这笔新资金可能会让中国在该组织中获得更大影响力。Human Rights and Food Aid Under Pressure人权与粮食援助面临压力Not all of the measures being put forth by China, Russia and their supporters to weaken human rights protections are finding success.中国、俄罗斯及其支持者提出的旨在削弱人权保护的措施，并非全都能成功推行。Their proposals to cut funding for human right investigations and slash speaking time for independent activists were ultimately not adopted at the private meetings of the Human Rights Council this spring. In July, Eritrea introduced a measure calling for an end to a U.N. investigation into human rights abuses within its borders; it was rejected.今年春季，在人权理事会非公开会议上，他们提出的削减人权调查资金、缩短独立活动人士发言时间的提案最终都未被采纳。7月，厄立特里亚提出一项终止联合国对其境内侵犯人权行为调查的提案，同样遭到否决。厄立特里亚外交部长奥斯曼·萨利赫·穆罕默德于2024年在联合国总部发表讲话。厄立特里亚已要求联合国终止对该国侵犯人权行为的调查。But public debates on the Eritrea investigation, along with funding for other U.N. human rights activities, will be scaled back.但关于厄立特里亚调查的公开辩论以及联合国其他人权活动的资金支持都将被缩减。The United States has its own record of human rights violations, and its global standing has eroded in recent years, diminishing its credibility in the United Nations. Now, its retreat has left rights monitors with fewer resources.美国自身存在侵犯人权的记录，其全球地位近年来不断下滑，在联合国的公信力不断下降。如今，美国的退出导致人权监督机构的资源进一步减少。Soon after Mr. Trump ordered the review of U.S. involvement in the United Nations in February, staff members in some U.N. agencies were told not to spend money that the United States had already allocated, resulting in a freeze on some projects, according to messages seen by The Times.《纽约时报》获取的信息显示，今年2月特朗普下令审查美国参与联合国事务的情况后不久，部分联合国机构的工作人员接到通知不得使用美国已拨付的资金，导致部分项目陷入资金冻结状态。Some agency heads in Geneva were caught off guard. The combination of the U.S. funding freeze and cuts by other donors was a shock, the U.N. high commissioner for refugees, Filippo Grandi, told staff members in May, according to a transcript obtained by The Times. “Unfortunately, regrettably, we will have to do less with less,” he said. “And this will impact the lives of millions of people.”日内瓦部分机构负责人对此感到意外。《纽约时报》获取的一份文字记录显示，今年5月，联合国难民事务高级专员菲利波·格兰迪告知工作人员，美国的资金冻结加上其他捐助方的资金削减，堪称一记重击。“遗憾的是，很不幸，我们将不得不用更少的资源做更少的事，”他表示，“这将影响数百上千万人的生活。”刚果民主共和国戈马市附近，联合国难民署在流离失所者营地搭建的帐篷，摄于今年2月。Although limited U.S. funding to the agency has resumed, the agency said in July that aid to up to 11.6 million refugees could be cut. The U.N.’s food agency estimates that as many as 16.7 million people could lose food assistance.尽管美国已恢复提供部分资金，但该机构在7月表示，对多达1160万难民的援助可能遭到削减。联合国粮食机构估计，多达1670万人可能失去粮食援助。European countries have argued they cannot fill the gap because the Trump administration has demanded that they spend more on defense, diplomats in Geneva said.驻日内瓦外交官表示，欧洲国家称无法填补这一资金缺口，因为特朗普政府要求它们增加防务开支。Nor will China make up the difference. The Chinese outlay to W.H.O. is far less than the United States would have paid, had Mr. Trump stayed in the organization.中国也不会填补这一缺口。中国向该组织提供的资金远低于若特朗普未退出情况下美国本应支付的金额。“This is the irony,” said Richard Gowan, the United Nations director at the International Crisis Group, an organization that seeks to prevent deadly conflicts. “The Chinese don’t need to step up in a big way to gain more influence. Because the U.S. walking out means that by definition, the Chinese are more powerful.”“真是讽刺，”致力于预防致命冲突的国际危机组织的联合国事务主任理查德·高恩说。“中国无需大幅增加投入就能获得更大影响力。因为美国的退出本身就意味着中国的影响力更强了。”6月，联合国世界粮食计划署向加沙地带的巴勒斯坦家庭分发面粉。该机构估计，在特朗普政府削减资金后，多达1670万人可能失去粮食援助。American Soft Power Up for Grabs美国软实力面临争夺Mr. Trump and his supporters sometimes deride U.N. “globalists” who put other countries’ interests before those of the United States. In fact, the United States, which helped create the United Nations 80 years ago, long wielded immense power, helping sway elections at the United Nations and votes to influence policy on human rights and other areas.特朗普及其支持者有时会嘲讽联合国中的“全球主义者”将他国利益置于美国利益之上。事实上，80年前协助创建联合国的美国长期以来一直拥有巨大影响力，不仅能左右联合国的选举结果，还能通过影响投票来主导人权及其他领域的政策走向。Now it stands to lose this influence.如今，美国可能会失去这种影响力。Andrew Bremberg, a former U.S. ambassador to the United Nations in Geneva, said he helped defeat a Chinese candidate in the 2020 election for the head of the U.N. organization charged with protecting intellectual property, by using the State Department to rally support. The agency shapes international rules around intellectual property, an area where the United States and China have long clashed.前美国驻日内瓦联合国大使安德鲁·布雷姆伯格表示，2020年，在联合国负责知识产权保护的机构负责人选举中，他曾通过国务院动员支持，成功击败了中国候选人。该机构制定知识产权领域的国际规则，而这正是美中长期存在分歧的领域。Washington also flexed its muscle at the International Telecommunication Union, an obscure but influential U.N. agency that sets policy for satellite communication and internet cables. China had led the agency for eight years, and pushed 5G equipment developed by Huawei, a Chinese telecommunications company.美国还在国际电信联盟展现了影响力。这一联合国机构虽不为人熟知，却颇具影响力，负责制定卫星通信及互联网电缆相关政策。中国曾主导该机构八年，并大力推广中国电信企业华为研发的5G设备。In 2022, the United States helped secure the election of an American, Doreen Bogdan-Martin, who helped U.S. technology companies make inroads in emerging economies.2022年，美国协助美国人多琳·博格丹-马丁当选该机构负责人，而她帮助美国科技企业打入了新兴经济体市场。But today that power only goes so far. At a meeting of that agency in June, American diplomats sought to block Shanghai from hosting a 2027 conference where the International Telecommunication Union will discuss satellite regulations, people familiar with the negotiations said.但如今，美国的这种影响力已大不如前。知情人士透露，在该机构6月的一次会议上，美国外交官试图阻止上海承办2027年的一场会议，国际电信联盟将在该会议上讨论卫星监管规则。国际电信联盟秘书长多琳·博格丹-马丁是美国人，图为她在2024年的一次新闻发布会上。A win for China would have presented security concerns for American companies hoping to join the conference. The United States offered Washington as a last-minute alternative.若中国此次获胜，将给希望参会的美国企业带来安全顾虑。美国在最后时刻提出在华盛顿举办的方案。Influencing votes was the sort of soft power move that the United States once excelled at.影响投票结果曾是美国最擅长的软实力手段之一。This time, the Americans lost.但这一次，美国失败了。马语琴(Mara Hvistendahl)是《纽约时报》国际版面调查记者。可以通过电子邮件与她联系：mara.hvistendahl@nytimes.com翻译：纽约时报中文网点击查看本文英文版。