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Hong Kong’S Case, It Was the Then-Gov- to Flee the Country COMMGAP DISCUSSION PapERS Communication for Governance Communication for Governance and Accountability Program (CommGAP) Public Disclosure Authorized and Accountability Program Changing Norms is Innovative Solutions for Governance Key to Fighting Everyday Corruption Public Disclosure Authorized Sabina Panth OCTOBER 2011 Public Disclosure Authorized Public Disclosure Authorized Innovative Solutions FOR GOVERNANCE © 2011 The International Bank for Reconstruction and Development / The World Bank Communication for Governance & Accountability Program (CommGAP) External Affairs 1818 H Street NW, MSN U11-1102 Washington DC 20433 Telephone: 202-458-7955 Fax: 202-522-2654 Website: http:// www.worldbank.org/commgap Blog: http://blogs.worldbank.org/publicsphere E-mail: [email protected] All rights reserved The findings, interpretations, and conclusions expressed herein are those of the author(s) and do not necessarily reflect the views of the Board of Executive Directors of the World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of the World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Rights and Permissions The material in this work is copyrighted. Copying and/or transmitting portions or all of this work without permission may be a violation of applicable law. The World Bank encourages dissemination of its work and will normally grant permission promptly. For permission to photocopy or reprint any part of this work, please send a request with complete information to the Communication for Governance & Accountability Program (CommGAP) at the address stated above. Table of Contents Background ...................................... 1 Analysis of the Case Studies ....................... 1 Established Norms....................................... 1 Instigating Factors Provoking Bottom-up Interventions ... 3 Objectives/Strategies for Action.......................... 5 Tools and Techniques Used .............................. 9 Outcomes/Impact of the Interventions .................. 16 Conclusion/Direction for Further Research and Action ............................. 20 Organically Grown Movements.......................... 21 Project-Instigated Movements .......................... 22 End Notes ....................................... 25 CHANGING NORMS IS KEY TO FIGHTING EVERYDAY CORRUPTION: ‘One-Step-Up’ Analysis of the Collated Case Studies from around the World Acknowledgments Conflict and Conrad Zellmann from Transparency This research paper was made possible through the International for their help in providing contacts contributions of many individuals and organiza- for many of the case studies included in this paper. tions from around the world. Sina Odugbemi, head Additional thanks go to Danielle Kurtzleben, of CommGAP, was instrumental in conceiving the Giorgi Meladze, Caludia Samoyoa, Engi Haddad, idea and providing guidance in shaping up this Dr. Iftekhar Uz-Zaman, Vijay Anand, Martin Sigal, paper. Special thanks go to Fumiko Nagano for her and Shaazka Beyerle, who, among others, provided early research on this topic and to Shaazka Beyerle interviews and written contributions to the prepa- from the International Center on Nonviolent ration of the case studies. II CHANGING NORMS IS KEY TO FIGHTING EVERYDAY CORRUPTION: ‘One-Step-Up’ Analysis of the Collated Case Studies from around the World Acronyms ICAIG International Commission Against Impunity in Guatemala ACIJ Asociación Civil por la Legualdad y la Justicia (Civil Association for ICO Information Commissioner’s Office Equality and Justice) ICT information, communication AID Advice and Information Desk technology ALAC Advocacy and Legal Advice Center IPAB I Paid a Bribe CCC committee of concerned citizens IPSA Independent Parliamentary Stan- CEDECOL Council of Evangelical and Protes- dards Authority tant Churches of Colombia KPK Corruption Eradication CIACS Cuerpos Ilegales y Aparatos Clandes- Commission tinos de Seguridad (illegal groups and MP member of Parliament clandestine security apparatuses) NAFODU National Foundation for Democracy CICIG International Commission against and Human Rights in Uganda Impunity in Guatemala NGO nongovernmental organization COL Culture of Lawfulness CommGAP Communication for Governance NSIC National Strategic Information and Accountability Program Center CPI Corruption Perception Index PR public relations CRC Citizen Report Card PTF Partnership for Transparency Fund CRD Community Relations Department RTI Right to Information EAC Egyptians Against Corruption RTO Regional Transport Office FOIA Freedom of Information Act TI Transparency International IACC International Anti-Corruption UNCAC Uited Nations Convention Against Conference Corruption ICAC Independent Commission against YES youth empowerment and support Corruption III Changing NOrms IS KEY TO Fighting EVerYdaY COrruptiON: ‘One-Step-Up’ Analysis of the Collated Case Studies from around the World Background norms? What were the strategies developed to achieve this end? Was it an organic, spon- One of the biggest impediments to anticorrup- taneous movement or an intervention from tion efforts is the fact that corrupt practices have external agencies? Did a national or a local become so institutionalized in everyday society nongovernmental organization (NGO) or an that citizens view them as fixed and incontestable. international instrument play a part in insti- To break down such an entrenched mind-set, the gating the changes? public’s ignorance of their rights, cynicism, fear of reprisal, and mentality of submission to the status Tools and techniques used: What tools and quo must first be defeated. Perhaps most important, techniques were employed? Was it a series of the efficacy challenge needs to be addressed. Citi- well-run awareness-raising campaigns or train- zens generally must believe that they can actually ing geared toward citizens? An effective leader do something about corruption in order to summon or group who could engage a critical mass of the courage to act upon that belief. people in the fight? An especially compelling idea diffused by well-implemented communi- Based on CommGAP’s interactions with the cation efforts? global anticorruption community as well as earlier research, we were able to collate 18 representative Outcomes/impact of the interventions: instances (case studies) from around the world, What results were achieved? What were with real-life examples of citizens coming together the immediate and long-term outcomes and to speak up against corruption and social norms impact (e.g., actions taken, policy interven- vis-à-vis corruption or to change public services tion/amendment, level of corruption reduced, affected by corrupt practices. change in social norms about corruption)? This report is a “one-step-up” analysis of the col- Conclusion: What general lessons/conclu- lated case studies, which is intended to shed light on sions can be drawn from the experiences? practical approaches, tools, and techniques that have What conditions are critical for anticorruption been successful in bringing citizens together to stand campaigns to take root and succeed? against the daunting phenomenon of corruption. We have structured our analysis based on the Analysis of the Case Studies following components: Established norms Established norms: Entrenched norm, apathy, or tolerance of everyday corruption. Examples as derived from the case studies of For example, what were the prevailing public entrenched norms, apathy, or tolerance of opinions and accepted norms regarding petty everyday corruption. corruption, and why were they problematic? Idioms Instigating factors provoking bottom-up In most of the case study countries, corruption is intervention. Did a certain event trigger a such a part of everyday life that citizens have come reaction from the people? Had society reached up with their own shorthand to express it. The a “tipping point” with respect to corruption? Indonesians refer it by the abbreviation KKN— Who are the change agents? koropsi, kolosi, nepotismee (corruption, collusion, and nepotism). The Indians understand it as riswat Objectives/strategies for action: How did (bribery of public officials). The Georgians call it change agents go about transforming these chackobili, (corrupt) and in Egypt, petty corruption 1 Changing NOrms IS KEY TO Fighting EVerYdaY COrruptiON: ‘One-Step-Up’ Analysis of the Collated Case Studies from around the World is described as “facilitation fees.” In Tunisia, a In Argentina, a famous legal philosopher, Carlos familiar proverb, “a rotten fish starts at the head,” Minos, describes the country as “at the margins has been used to trace the culture of corruption in of the law.” Some have alluded to Argentina’s dic- the country—the ultimate rotten fish being Sine tatorial political history as having cultivated the Ben Ali, Tunisia’s former president. The Filipinos culture of nepotism in public institutions. Others have accepted it as kalakaran (a way of life), and blame the heritage of Italian immigration for the in fact, have come up with the Corruptionary, a way business is done in the country, which caters dictionary that provides defines corruption in each to the “mafia” or the corrupt elite. In Turkey, public situation—for example, pang-almusal (for break- institutions are referred
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