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Study on Anti-Corruption Measures in EU Border Control

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Study on Anti-Corruption Measures in EU Border Control ANTI-CORRUPTION MEASURES IN EU BORDER CONTROL CENTER FOR THE STUDY OF DEMOCRACY ANTI-CORRUPTION MEASURES IN EU BORDER CONTROL CENTER FOR THE STUDY OF DEMOCRACY The present report provides academic and policy perspectives, as well as rich empirical data on corruption observed in border guard institutions across the European Union. It also compares and analyses anti-corruption measures in EU Member States’ border guard services, as well as the strategies and instruments used in corruption investigations of border guards. This report has been written by Dr. Philip Gounev, Rositsa Dzhekova, and Tihomir Bezlov of the Center for the Study of Democracy (Project 1 EOOD). The team would like to thank Dr. Barrie Irving of RAND Europe for methodological advice and useful comments. Mr. Krasimir Vankov, Former Head of the Border Controlling Stations Department at the Bulgarian Border Police was also instrumental in designing the data collection tools. We also would like to thank the officers at Frontex and Mr. Ruslan Stefanov, Director of CSD's Economic Programme for their comments and suggestions. Additional research support was provided by Kristof Gosztonyi, Petr Kupka, Georgi Pashev, Nicolas Eslava, Boyan Vassilev, Emil Tsenkov, Kamelia Dimitrova, and Snezhana Popova. The present study was commissioned by Frontex. The views expressed within the document are those of the authors and do not necessarily reflect wholly or in part those of Frontex. The study remains the property of Frontex and any results or rights thereon, including copyright, are solely owned by Frontex. Reproduction in any form or by any means is allowed only with the prior permission of Frontex. With the financial support of the Prevention of and Fight against Crime Programme European Commission – Directorate-General Home Affairs ISBN 978-954-477-192-8 © 2012, by Frontex All rights reserved. Published by the Center for the Study of Democracy 5 Alexander Zhendov Str., Sofia 1113 tel.: (+359 2) 971 3000 fax: (+359 2) 971 2233 www.csd.bg, [email protected] CONTENTS LIST OF TAB L ES .................................................................................................................. 5 LIST OF FIGURES ................................................................................................................ 7 LIST OF ABBREVIATIONS ....................................................................................................... 8 REFERENCING GUIDE ........................................................................................................... 9 EXECUTIVE SUMMARY ........................................................................................................ 11 1. INTRODUCTION ......................................................................................................... 17 1.1. CORRUPTION AND BORDER SE C URITY IN THE EU ................................................ 17 1.2. OBJE C TIVES AND STRU C TURE OF THE STUDY ...................................................... 18 1.3. DEFINITIONS .................................................................................................... 19 1.4. METHODS USED .............................................................................................. 19 1.5. REPRESENTATIVENESS AND DATA -RELIABILITY ........................................................... 20 2. CORRUPTION AND ITS DIMENSIONS ............................................................................ 21 2.1 WHAT IS C ORRUPTION ? ................................................................................... 21 2.2 INSTITUTIONS AND C ORRUPTION ........................................................................ 24 2.3 CORRUPTION AND OTHER FOR M S OF C RI M E ...................................................... 24 2.4 MEASURING C ORRUPTION ................................................................................. 25 2.5 CAUSES OF C ORRUPTION .................................................................................. 26 2.6 IM PA C T OF C ORRUPTION .................................................................................. 32 3. PUB L IC SECURITY SECTOR CORRUPTION ....................................................................... 35 3.1. DEFINING POLI C E C ORRUPTION ......................................................................... 35 3.2. CAUSES AND TYPES OF POLI C E C ORRUPTION ...................................................... 39 3.3. INSTITUTIONAL PERSPE C TIVE ............................................................................... 42 3.4. TYPOLOGIES AND FOR M S OF POLI C E C ORRUPTION .............................................. 45 4. CORRUPTION AMONG BORDER GUARDS ...................................................................... 51 4.1. CORRUPT BORDER GUARD PRA C TI C ES ................................................................. 52 4.2. FA C TORS IN BORDER GUARD C ORRUPTION ......................................................... 61 4.3. BRIBES , AND HO W THEY ARE PAID .................................................................... 70 4.4. LEVELS OF BRIBES ............................................................................................ 73 4.5. SC ALE OF THE PROBLE M AND TYPOLOGIES ......................................................... 74 4.6. BORDER GUARDS AND C ORRUPTION IN OTHER INSTITUTIONS ............................... 79 5. ANTI -CORRUPTION MEASURES IN L AW -ENFORCEMENT AGENCIES ...................................... 83 5.1. ANTI -C ORRUPTION INFRASTRU C TURE ................................................................... 83 5.2. THE EU AND THE FIGHT AGAINST C ORRUPTION .................................................. 85 5.3. ANTI -C ORRUPTION M EASURES AND THE POLI C E ................................................... 87 5.4. EFFE C TS OF ANTI -C ORRUPTION M EASURES ........................................................... 90 6. ANTI -CORRUPTION MEASURES FOR BORDER GUARDS .................................................... 95 6.1. ST R AT E G I C AND LEGAL FRA M E W ORKS .................................................................. 95 6.2. OPERATIONAL M EASURES ................................................................................... 99 6.3. ADMINISTRATIVE ANTI -C ORRUPTION M EASURES .................................................... 103 6.4. HU M AN RESOUR C E M ANAGE M ENT R E L AT E D M EASURES ........................................ 105 6.5. INVESTIGATIONS INTO BORDER GUARD C ORRUPTION .......................................... 113 7. CONC L USIONS ........................................................................................................ 121 7.1. CORRUPTION AND C ORRUPT PRA C TI C ES ........................................................... 121 7.2. COUNTERING C ORRUPTION ............................................................................. 123 7.3. RE C O mm ENDATIONS : TO W ARDS C O mm ON APPROA C HES AGAINST BORDER C ORRUPTION ........................................................................ 124 ANNEX 1. METHODS AND SURVEY RESU LTS .................................................................... 127 ANNEX 2. SURVEY RESU LTS ............................................................................................ 133 BIBLIOGRAPHY ................................................................................................................ 153 Anti-corruption measures in EU border control 5 LIST OF TABLES TAB L E 1. COUNTRY ABBREVIATIONS .......................................................................... 9 TAB L E 2. DEFINITIONS OF C ORRUPT ACTIVITIES ....................................................... 23 TAB L E 3. DEVIANT BEHAVIOUR OF POLI C E OFFI C ERS ................................................ 36 TAB L E 4. SAYED AND BRU C E ’S C ORRUPT PRA C TI C ES SPECIFIC TO THE POLI C E ............. 37 TAB L E 5. BARKER AND ROEBU C K ’S CLASSIFICATION OF C ORRUPT PRA C TI C ES IN THE POLI C E ...................................................................................... 38 TAB L E 6. POLI C E C ORRUPTION C AT E G O R I E S ............................................................. 46 TAB L E 7. GREEN /BLUE BORDER AREAS AND BCP W ITH IN C REASED VULNERABILITY TO C ORRUPTION .................................................................................... 64 TAB L E 8. SALARIES AND VULNERABILITIES ................................................................. 67 TAB L E 9. AC TUAL AND DESIRED SALARIES ............................................................... 68 TAB L E 10. PROSE C UTED , INVESTIGATED , OR OTHER W ISE SAN C TIONED OFFI C ERS IN 2010 ............................................................................................... 76 TAB L E 11. POINT OF C O M PARISON : C ORRUPTION IN THE US CUSTO M S AND BORDER PROTE C TION (CBP) ........................................................... 78 TAB L E 12. ST R AT E G I C -LEVEL ANTI -C ORRUPTION DO C U M ENTS ........................................ 99 TAB L E 13. INSTITUTIONS WTHI PO W ERS TO INVESTIGATE BORDER GUARD C ORRUPTION ....................................................................................... 113 TAB L E 14. LIST OF RESPONDING MS AND INSTITUTIONS ......................................... 128 TAB L E 15. IN YOUR OPINION /ANALYSIS , BORDER POLI C E OFFI C ERS IN W HI C H AREAS OR UNITS ARE AT RISK OF BEING C ORRUPTED /BRIBED ? ............................ 134 TAB L E 16. IN YOUR OPINION /ANALYSIS , BORDER POLI C
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