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INSTITUTE FOR DEMOCRACY AND MEDIATION Police Integrity and Corruption in Albania Institute for Democracy and Mediation 3 Table of Contents 1. Executive Summary 8 2. Introduction 13 3. Methodology 14 3.1. Methodology of Survey with Citizens 15 3.2. Methodology of Survey with State Police Officials 15 3.3. Qualitative Analysis 16 3.4. Interviews with Hypothetical Scenarios 16 4. Police Corruption 18 4.1. What Is Corruption? 18 4.2. Police Corruption and Its Types 20 4.3. Corruption, Deviance and Misconduct 25 4.4. Police Integrity and Corruption 30 5. Police Corruption in Albania 31 5.1. Corruption as a General Phenomenon 31 5.2. Types of Corruption 36 5.3. Police Corruption in Albania 39 6. Literature Review on Factors of Police Corruption 41 6.1. Combination of PESTL Factors 42 6.2. Combination of Structural and Cultural Influences 43 6.3. Combination of Constant and Variable Factors 44 6.4. The Combination of Individual, Organizational and Societal Factors 48 6.5. Other Factors 53 7. Assessment of State Police Anticorruption Framework in Albania 54 7.1. Anticorruption Policy 55 7.1.1. National Anti-Corruption Strategy 2008-2013 55 7.1.2. State Police Strategy 2007-2013 58 7.1.3. National Plan on Implementation of Stabilization and Association Agreement 2009-2014 59 7.2. Legal Framework 62 7.3. Institutional Framework 67 7.4. Results in the Fight against Corruption 70 8. Extent and types of police corruption in Albania 77 8.1. Extent of Spread of Corruption 77 8.1.1. Spread of Corruption According to the Public 78 8.1.2. Spread of Corruption according to Police Officers 80 4 Police Integrity and Corruption in Albania 8.2. Types of Corruption 81 8.2.1. Official and Media Reports 81 8.2.2. Public Perception 83 8.2.3. Police Officers’ Perception 85 9. Causes of Police Corruption in Albania 88 9.1. Public Perceptions 88 9.2. Police Officers’ Perceptions 90 9.2.1. Overall Environment 90 9.2.2. Organizational Factors 91 9.2.3. Trust in the Anticorruption System 95 10. Police Integrity and Corruption 97 10.1. Assessment of Severity of Conduct 100 10.2. Support for Disciplinary Measures 101 10.3. Willingness to Report Violations 102 10.4. Compliance with the Official Policy 104 11. Conclusions and Recommendations 106 11.1. Conclusions 106 11.2. Recommendations for the Reform 107 12. Annexes 112 12.1. Annex 1 112 12.1.1. Description of sample 112 12.1.2. Acquaintance with police organizations 114 12.1.3. Information and perceptions on corruption 117 12.1.4. Experiences with corruption 122 12.1.5. Types and degree of corruption 125 12.1.6. External factors of corruption 127 12.1.7. Internal factors of corruption 130 12.1.8. Tolerance to corruption 130 12.1.9. Trust in fight against corruption 133 12.1.10. Evaluation of anti-corruption legal framework and policies 136 12.2. Annex 2 140 12.2.1. Sample Description 140 12.2.2. Acquaintance of police organizations 143 12.2.3. Experiences with corruption 149 12.2.4. Types and degree of corruption 151 12.2.5. External factors of corruption 154 12.2.6. Internal factors of corruption 156 12.2.7. Tolerance to corruption 158 12.2.8. Trust in fight against corruption 160 12.2.9. Review of legal framework and anti-corruption policies 164 Institute for Democracy and Mediation 5 12.3. Annex 3 167 12.3.1. Perception on corruption and police organizations 167 12.3.2. Experiences with corruption 173 12.3.3. Types of corruption in State Police – Bribe 175 12.3.4. External and internal factors of corruption 175 12.3.5. Tolerance to corruption & confidence in fight against corruption 178 12.3.6. Appropriateness and enforcement of the anticorruption legal framework/ policies 180 12.4. Annex 4 183 12.4.1. DEMOGRAPHIC DATA 183 12.4.2. ACQUENTANCE WITH POLICE ORGANISATIONS 184 12.4.3. INFORMATION ON CORRUPTION 186 12.4.4. PERCEPTIIONS ON CORRUPTION 187 12.4.5. EXPERIENCES WITH CORRUPTION 189 12.4.6. TYPES AND DEGREE OF CORRUPTION 192 12.4.7. EXTERNAL FACTORS OF CORRUPTION 193 12.4.8. INTERNAL FACTORS OF CORRUUPTION 194 12.4.9. TOLERANCE TO CORRUPTION 195 12.4.10. TRUST IN FIGHT AGAINST CORRUPTION 196 12.4.11. EVALUATION OF ANTI-CORRUPTION FRAMEWORK 197 12.5. Annex 5 200 12.5.1. DEMOGRAFIC DATA 200 12.5.2. ACQUENTANCE OF POLICE ORGANISATIONS 201 12.5.3. INFORMATION ON CORRUPTION 202 12.5.4. PERCEPTIONS ON CORRUPTION 203 12.5.5. EXPERIENCES WITH CORRUPTION 205 12.5.6. TYPES AND DEGREE OF CORRUPTION 206 12.5.7. EXTERNAL FACTORS OF CORRUPTION 207 12.5.8. INTERNAL FACTORS OF CORRUPTION 208 12.5.9. TOLERANCE TO CORRUPTION 209 12.5.10. TRUST IN FIGHT AGAINST CORRUPTION 211 12.5.11. EVALUATION OF ANTI-CORRUPTION FRAMEWORK 212 12.6. Annex 6 214 12.6.1. Table of scenarios 214 12.6.2. Table of responses 216 6 Police Integrity and Corruption in Albania Foreword Police organizations present a unique paradox in modern democracies: they are guarantors of security and protectors of fundamental freedoms; and, at the same time, they are a potent threat to those same liberties. Per- haps no other servants of the state carry so much responsibility and require so much public trust. The police must be able to exercise a wide range of lawful powers - including the use of deadly force - in order to protect citizens and ensure law and order; and, at the same time, they must act in a manner that fully respects the law, civil liberties and basic human rights. The extent to which the police get the balance right is a recognized indi- cator of true democracy in a society. That indicator of true democracy is often measured by the level of public trust in the police. The publication of this IDM research report is both welcome and timely, as a means of measuring public trust in the Albanian State Police (ASP) and indicating the strength of democracy in this country. A wealth of data has been provided that will assist in understanding public perceptions of the police in greater depth and detail than in any previous period of Al- bania’s history. This data will provide a much-needed factual basis for debate about integrity within the ranks of the ASP, and inform the process of police reform and restructuring. The IDM information will also provide added impetus to the revised Code of Ethics and the growing desire within the Government to eradicate police corruption through an uncompromis- ing adherence to moral and ethical principles. Dr. Frank Harris, D.Crim.J. Police Accountability Advisor, Ministry of Internal Affairs ICITAP, Albania Institute for Democracy and Mediation 7 List of Abbreviations and Acronyms ASP Albanian State Police CMD Council of Ministers’ Decision CoE Council of Europe CPI Corruption Perception Index EU European Union ICS Internal Control Service ICITAP International Crime Investigative Training Assistance Program IDM Institute for Democracy and Mediation IDRA Institute for Development Research and Alternatives PESTL Political, economic, social, technological, and legal (factors) PSD Professional Standards Department SAA Stabilization-Association Agreement SAA Stabilization-Association Agreement SELDI Southeast Europe Leadership for Development and Integrity SP State Police TI Transparency International UN United Nations US United States USAID United States Agency for International Development WB World Bank 8 Police Integrity and Corruption in Albania 1. Executive Summary This publication treats corruption in the State Police in Albania and the need to strengthen integrity of the institution of the Police as a means to reduce corruption. During the years of transition, corruption has surfaced as one of the major problems of governance in Albania. The data show that corruption is still high and prevalent. The measures undertaken over the last decade to address this problem through constant reforms and by adopting or reviewing the legislation on conflict of interests, by limiting the immunity of politicians and judiciary, or to better address the financing of political parties have produced no steady effects, indicating that corruption has been resistant to these mea- sures. The police have been quite exposed to the threat in this environment of widespread corruption, due to the fact that the police are one of the ma- jor law enforcement institutions to investigate corruption. In this context, police corruption has also constituted one of the causes of the prevailing corruption in other sectors. Similar to other sectors, corruption of police in Albania has been wide- spread and the police are perceived by the public as one of the institutions with the highest level of corruption in the country. Irrespective of efforts made to address this phenomenon among the police, principally through amendments to the legislation and enhancement of institutional capacities, results indicate that police corruption is still persistent. In light of this context, this publication seeks to bring to the attention of policymakers, senior police leaders and officers, other stakeholders, and public at large the problem of police corruption and the particular impor- tance of the fight against this phenomenon among the police. Its main goal is to contribute to the improvement of the anticorruption measures by ac- quiring a better knowledge of the police corruption and the factors that Institute for Democracy and Mediation 9 drive or control it. At first, the study elaborates police corruption as a specific phenomenon by highlighting the need to develop anticorruption measures in conformity with the specifics that characterize it. To this end, the study focuses on an evaluation of (i) the level and forms of police corruption, (ii) the factors that drive police corruption, and, (iii) the relevance, efficacy, efficiency, and sustainability of anticorruption measures.
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