Covering Corruption: The Difficulties of Trying to Make a Difference

A Report to the Center for International Media Assistance

By Rosemary Armao

July 21, 2010 The Center for International Media Assistance (CIMA), a project of the National Endowment for Democracy, aims to strengthen the support, raise the visibility, and improve the effectiveness of media assistance programs by providing information, building networks, conducting research, and highlighting the indispensable role independent media play in the creation and development of sustainable democracies around the world. An im- portant aspect of CIMA’s work is to research ways to attract additional U.S. private sector interest in and support for international media development.

CIMA convenes working groups, discussions, and panels on a variety of topics in the field of media development and assistance. The center also issues reports and recommendations based on working group discussions and other investigations. These reports aim to provide policymakers, as well as donors and practitioners, with ideas for bolstering the effectiveness of media assistance.

Marguerite H. Sullivan Senior Director

Center for International Media Assistance National Endowment for Democracy 1025 F Street, N.W., 8th Floor Washington, D.C. 20004

Phone: (202) 378-9700 Fax: (202) 378-9407 Email: [email protected] URL: http://cima.ned.org About the Author

Rosemary Armao

Rosemary Armao is an assistant professor of journalism/communication at the State University of New York at Albany and a consultant and member of the board of directors of the Center for Investigative Reporting in Bosnia and the Organized Crime and Corruption Project based in Bucharest. In a career of nearly 40 years she has written and edited at a number of U.S. newspapers, taught in several universities and worked on reporting and media development projects in Africa, Asia, and Eastern Europe. She is a former executive director and member of the board of directors of Investigative Reporters and Editors and a former Knight International Press Fellow. She’s served as a bureau chief for the Baltimore Sun, managing editor of the

Sarasota, Fla. Herald Tribune, and state and investigative editor of the Fort Lauderdale Sun CoveringCIMA Research Report: Corruption Sentinel. She holds degrees from Syracuse University and Ohio State University.

Center for International Media Assistance 1 Table of Contents

Preface 3

Scope and Methodology 4

Executive Summary 5

Overview: The Sad State of Anti-Corruption Journalism 7

Can Media Deter Corruption? 11

Obstacles and Challenges 15

Public Apathy 15

Hostile Legal Environments 17

The Dangers of Reporting on Corruption 21

New Tools, New Hope 25

Digital Media 25

Talent and Training 26

CIMA Research Report: Covering Corruption Report: Research CIMA Covering Recommendations 30

Endnotes 34

2 Center for International Media Assistance Preface

The Center for International Media Assistance (CIMA) at the National Endowment for Democracy commissioned this study of the effect of news coverage of corruption on the incidence and prevalence of corruption worldwide.

CIMA is grateful to Rosemary Armao, a veteran editor and journalism educator with extensive international experience training journalists, for her research and insights on this topic.

We hope that this report will become an important reference for international media assistance efforts. CIMA Research Report: CoveringCIMA Research Report: Corruption

Marguerite H. Sullivan Senior Director Center for International Media Assistance

Center for International Media Assistance 3 Scope and Methodology

This paper examines the impact of The idea that a free press is linked to better, reporting about corruption on the incidence more honest government is accepted as a of corruption, asking whether and how given, largely without direct evidence. Yet media has an effect in bringing about only recently have news organizations begun reform and better governance. asking whether what they are doing is making any difference. This paper will attempt to It asks those question in a number of discern patterns in the topics and methods of specific settings–Mexico, Uganda, reporting that seem to lead to civil action and Bosnia-Herzegovina, and Bangladesh reform and also keep journalists safe to do –where media systems, the talent and more of that work. The purpose is to suggest traditions of native journalists and some of the best practices and training the strength of democratic structures, that should be put into place by media especially courts, law enforcement, and development organizations and educational government agencies, differ greatly institutions. from the United States. The experience of highly successful U.S. journalists The research behind this report draws from in fighting corruption provides an several key sources: illuminating comparison to that of their colleagues overseas and has been used zz A literature search of governmental here in consideration of the fact that U.S. and non-governmental agency reports, media have provided a leading model for academic journals, websites, and news watchdog journalism. The rationale for articles. Information compiled by this approach is that American journalists, the Committee to Protect Journalists, who can rely on mostly well-functioning Transparency International, and Global police, judicial, legislative institutions, and Integrity was especially valuable. powerful private advocacy groups, plus a long tradition of watchdog journalism, zz Interviews in person, by e-mail and CIMA Research Report: Covering Corruption Report: Research CIMA Covering should be expected to have the best chance phone with investigative reporters of effecting change through their reporting. and NGO representatives in the How the process from disclosure to reform United States, Bosnia, Uganda, works in the United States helps clarify Bangladesh, and Mexico conducted what may be lacking in other countries. between January and May 2010.

4 Center for International Media Assistance Executive Summary

It is often taken for granted that a free Journalists in Mexico, Bosnia-Herzegovina, press shining a light on wrongdoing Uganda, and Bangladesh face just those is the way to control corruption. conditions, yet have made headway in battling the unfair treatment of citizens at The World Bank, with an eye to the the hands of their government. They brought economic potential of honest government, about the political downfall of a Bosnian promotes this, as do United Nations agencies prime minister, for example, and stopped and the U.S. and European governments, the sale of a virgin rainforest to sugarcane which spend millions of dollars to develop dealers in Uganda. They have shown readers media with corruption-fighting power. that corruption is of direct interest to them

And brave journalists have endured threats and that they have the power to do something CoveringCIMA Research Report: Corruption and attacks and have even died reporting about it. They have found that compelling about corruption. writing about real In June and July of people battling with 2010 alone, three the consequences of Philippino and a Greek It is often taken for granted corruption overcomes journalist–working in that a free press shining a the fatigue that different media and on light on wrongdoing is the arises from reading different topics, but all consistently bad news. exposing corruption– way to control corruption. Instead, citizens were gunned down. But while media has a role in get outraged. Covering corruption guarding against corruption is more dangerous These corruption than covering war. in healthy democracies, what reporters are building is its role in states where international and But while media has democracy is not so healthy? regional networks. a role in guarding Such alliances offer against corruption in greater security healthy democracies, for them and wider what is its role in states where democracy context and data for stories that challenge the is not so healthy? Where police and powerful. They also are increasingly teaming politicians are among the corrupt, the with non-governmental organizations and courts are bound up with the powerful, activist groups over the Internet and through and people have come to accept petty social networking media for increased bribery and gifting as normal, what can impact. Stories that once might have been journalists do? How can they operate censored or killed now are reaching wide in nations that give them no right to see audiences and prompting citizen action. government documents, no access to question officials and where they are Reporters writing about corruption have subjected to jail for sedition or libel if they prompted police, prosecutors, and courts write anything perceived as unfavorable? to perform their jobs better, moving their

Center for International Media Assistance 5 countries closer to full democracies. They on which this report focuses all consistently also have promoted the work of official score low on both these indexes and have anti-corruption agencies, providing even dropped further down the scales. them cover against powerful enemies Journalists on the corruption beat in the who want to avoid scrutiny. Even their developing world agree on many steps that persistence in checking records and asking could help them do their job better. Chief questions helps keep leaders in check. among them is overhauling the education they get in the field. Instead of short- Much of these achievements do not show term and generalized workshops, they up in the faulty measurements taken of propose two differing training models: corruption. The widely used Transparency Put advanced or experienced reporters International Corruption Perceptions rating into high-level and intense classes on measures citizens’ views of the problem finding, tracking, and documenting in their countries. A new Global Integrity organized crime and corruption or fund scoring card of nations is based on reports independent centers where reporters work from political scientists and reporters about for extended periods under experienced an array of democratic institutions and editors learning the ropes and adhering mechanisms in a country. The four countries to high professional standards. CIMA Research Report: Covering Corruption Report: Research CIMA Covering

6 Center for International Media Assistance Overview: The Sad State of Anti-Corruption Journalism Media in developing countries, like the their streets. The residents broke the news societies they cover, face overwhelming blackout by taking photos of the violence challenges in combating endemic corruption. on their cellphones and posting videos.1 Among them: limited resources and skills, hostile legal environments, an apathetic “Journalism is dead in Reynosa,” TV public, and sometimes grave physical danger. news producer Ciro Gómez Leyva told the Times.2 Long-time respected investigative Yet a number of organizations, journalists, reporter and journalism trainer Ana Arana, and media outlets have openly challenged who recently returned home after years corruption in the most difficult of locales of working abroad, goes further in her CoveringCIMA Research Report: Corruption and won. Understanding how these pessimism. “In Mexico,” she said, “reporting successes were about corruption achieved is important doesn’t do anything.” to replicating Media in developing countries, You may spark a future successes. like the societies they cover, scandal that will last for a week or two, she In the past three face overwhelming challenges said, but “Nothing years, Mexico City’s in combating endemic happens … Nothing 3 El Universal reported corruption. Among them: has an impact.” in April 2010, more than 18,000 people limited resources and skills, Many journalists have been killed hostile legal environments, an in developing or in the country’s apathetic public, and sometimes newly democratized so-far ineffectual countries around war against drug grave physical danger. the globe–similarly traffickers powered under fire, under- and emboldened resourced and battling by their blanket corruption of everything both resistant officials and a skeptical from police and customs to banks. public in trying to expose corruption and crime–share that gloomy assessment. Drug lords have learned they can keep their depredations out of the headlines “There are a lots of disillusioned journalists by using threats and gunfire along with in Eastern Europe,” said Romanian bribes to craft the coverage they want investigative reporter Paul Radu, whose from journalists. In March, the New York Center for Investigative Journalism Times’ Marc Lacey encountered residents in Bucharest for a decade has taken in Reynosa incensed that local reporters, on organized crime and corrupt and fearful of the vengeful drug dealers, incompetent government officials whom would not risk writing a single word about mainstream media had shied away from. repeated shoot-outs that left bodies in He has also taught inexperienced reporters

Center for International Media Assistance 7 from Latin America and Asia how to track corruption. But the CPJ count also includes and document corruption. “They want reporters killed while covering human action as soon as they print. They expect the rights (14 percent of the total) and politics government to take action, he said” More (38 percent), crime (14 percent more of the often, officialdom hardly acknowledges their total) and even sports (3 percent of deaths), stories and discouraged reporters get out where stories involve corruption such as of the business–taking with them training human trafficking or fixing soccer matches. and skills sorely needed in the field.4 “It’s the kind of journalism that has a lot Often, readers and viewers are not of martyrs,” Simon said. “These journalists supportive or sympathetic because they knew they’d be killed and accepted it as a see the corruption that journalists are out consequence of what they were doing. They to expose as inevitable. “There is a sense believed so fervently, it didn’t matter.”6 of apathy and acceptance,” said That is the Bernard Tabaire, situation in a long-time “It’s the kind of journalism that has Russia, where writer and editor a lot of martyrs. These journalists 13 journalists for the Monitor have been killed newspaper in knew they’d be killed and accepted since Vladimir Kampala, Uganda, it as a consequence of what they Putin took office, and now general were doing. They believed so and no murderer secretary of the has ever been African Centre for fervently, it didn’t matter.” caught.7 While Media Excellence. most news outlets — Joel Simon, executive director, “Even in private and non-profits Committee to Protect Journalists conversations in in Russia, like homes, corruption those in Mexico, is not seen as steer away a terrible thing … it’s our way of life. from tackling corruption as the result of CIMA Research Report: Covering Corruption Report: Research CIMA Covering Institutional guardians of morality like such violence, an exceptional few media the churches–very few speak out.”5 companies and individuals keep trying.

Furthermore, those journalists in Reynosa “Moscow Crime Reporter, Facing His are right to be afraid. Joel Simon, executive Obituary Daily,” was the headline over a director of the New York-based Committee New York Times story in June 2009 about to Protect Journalists (CPJ) and a leading Sergei Kanev, a muckraking reporter who expert on press freedom, calls corruption specializes in police corruption for Novaya “one of the most dangerous beats” in the Gazeta. One of his investigations was world. Of the 812 journalists murdered into the 2006 murder of colleague Anna between 1992, when CPJ began keeping Politkovskaya while in the midst of reporting count, and the last week of May 2010 when about Russian involvement in Chechnya. he was interviewed, Simon said, 21 percent His mother hates his job. “It’s useless,” she had been working on stories strictly about told the Times. “It’s like hitting a stone wall

8 Center for International Media Assistance with your forehead. You can hit it as long as proceedings–that they can trace at least you want and get bruises and lumps if you’re indirectly to articles and projects they lucky, or otherwise get crippled, or lose your have undertaken. Over the six years it life.” Kanev told the newspaper, “We try has been in operation, funded first by a to reach our citizens to say, ‘Look, people, USAID grant and now by donations from it’s enough.’ Let’s take back our country.”8 an array of governmental and non-profit donors, the center’s experience suggests “To be a journalist in Russia is suicide,” the that even a limited independent press Guardian in Great Britain headlined a 2008 can make a difference in some cases. story about Mikhail Beketov, who continued to report about rampant corruption in a In 2007 CIN reporters detailed the steps by Moscow suburb even after his car was set which Nedžad Branković, prime minister on fire and his dog killed. He stopped after of one of Bosnia’s two political sections, being beaten so badly he lost a leg, three obtained a spacious downtown Sarajevo CoveringCIMA Research Report: Corruption fingers and the ability to speak.9 In May, the apartment for just $500 and with none Times also wrote about Beketov, reporting of the usual red tape ordinary citizens that there had been no arrests in his case.10 face in finding housing. Government records proved that in a few days he But there is another story to tell. The choices found a swank hilltop apartment, had the for journalists battling corruption and government and a state company buy it, saw organized crime do not have to be limited it moved onto a list of excess apartments to suffering savage beatings or publishing kept after the 1990s war for the benefit exposés that bear no results, as experiences of refugees, and then privatized it. in Eastern Europe show. By adopting internationally recognized standards of That was not the worst case of corruption, accuracy, fairness, ethics, and a style of but it struck a chord among readers who reporting used elsewhere in the world, by knew firsthand about waiting for years to networking with colleagues from throughout privatize family apartments or paying a the region and the West, and by adjusting fortune to find a place to live. Other media expectations for success, reporters there picked it up and dug into other aspects of his are making small, steady gains against business and government life. Branković’s corruption. This is happening even in the repeated protestation to reporters that he absence of fully functioning press, police, had done nothing illegal was picked up by and prosecutorial systems, and amid poverty a popular band, which used the quote as and the wrenching changes of economic and the chorus in a protest song. When graffiti political transition. Similarly encouraging guerillas spray-painted slurs on his home results have been documented in such places and Branković demanded the police make as far apart as the Philippines and Uganda. arrests, a Facebook campaign ignited. Police were inundated with calls from Journalists at the Center for Investigative people confessing to the graffiti. About Reporting (CIN in its Bosnian initials) two years after the first center story was in Sarajevo, Bosnia-Herzegovina, published, Branković’s political rivals used maintain a list of “effects”–resignations, an indictment against him for the apartment firings, changes in laws, or criminal transaction and public disenchantment

Center for International Media Assistance 9 as an excuse to force his resignation. He The center outlined the excessive lifestyle and another top official are being tried of Estrada, an ex-movie star who kept his in connection with the housing scam. family and mistresses in mansions and Corruption trials are rare in Bosnia, as is cars. The precisely documented financial the kind of citizen action this case inspired. disclosures scandalized the public and Buoyed by success in removing Branković, powerful institutions such as the Catholic one citizen group has moved on to press Church and led to an uprising on the streets for constitutional changes that would of Manila that ended his administration. allow citizen recalls and referendums.11 With this as background, the intention of Sheila S. Coronel, executive director of this paper is to look at the potential and the the Toni Stabile Center for Investigative limits of free and independent media to help Journalism at Columbia University’s decrease corruption in countries that lack Graduate School of Journalism, has written strong laws, an independent judiciary, and persuasively about the power of a free press other democratic supports. It will look at in places where journalists are safe and practices that have had impact, particularly laws are on their side to act as a watchdog in Mexico, Bosnia-Herzegovina, Bangladesh, and to promote good governance. She has and Uganda, where the press has reported especially made the argument that the media vigorously on corruption, and it will can fight corruption in the Asia-Pacific address three areas of particular concern: region, where she has personal experience.12 the safety of reporters, the need for better In 2000, as a reporter with the Philippine training in how to cover corruption, and the Center for Investigative Journalism, she growing use of social networking and other helped bring about the impeachment of digital technology to report incidences of President Joseph Estrada for corruption. corruption and raise public awareness. CIMA Research Report: Covering Corruption Report: Research CIMA Covering

10 Center for International Media Assistance Can Media Deter Corruption?

Corruption is distressingly ubiquitous, and Director Nathaniel Heller says: “I that makes it difficult to answer the question personally believe there’s no way to about whether reporting on corruption helps know whether there is more or less to decrease it. corruption in the world today compared with yesterday.” Likewise, he called it Journalists who cover corruption, “impossible to know” if news coverage CPJ’s Simon pointed out, tend to helps decrease corruption, though he work in places where there is much believes the two are only indirectly linked. corruption to begin with. He wondered: Would there be even more without “In many countries, strong media helps, them? How could one assess that?13 and we believe it to be a key anti-corruption CoveringCIMA Research Report: Corruption mechanism.” Chuck Lewis of Heller said. “In American University, “In many countries, strong more repressive an authority on media helps, and we believe countries, reporting international on corruption will corruption and it to be a key anti-corruption simply get you founder of the mechanism. In more repressive killed or kicked out Center for Public countries, reporting on with little impact Integrity, in 2005 set on the problem.”15 up Global Integrity, corruption will simply get you a world-wide non- killed or kicked out with little profit organization impact on the problem.” Bob Greene, that attempts to investigations assess corruption — Nathaniel Heller, managing director editor of Newsday in countries around of Global Integrity and a founder the world. of Investigative Reporters and Editors “As long as we have humans we will have (IRE) in the United States, used to tell corruption,” he said. “You are not going young audiences at IRE conventions that to stop it. It’s part of the human DNA.” corruption looked the same everywhere. He Global Integrity works with researchers and would go on to list the offenses they should journalists to rank countries’ overall anti- be on the lookout for, such as nepotism, corruption safeguards. The intricate ranking expense account abuse, trading on insider includes evaluations of six good-governance information. In similar fashion Forbes institutions and mechanisms in each magazine writer Paul Klebnikov in his country such as media, civil service and 2001 book, Godfather of the Kremlin, The administration, elections, and rule of law.14 Decline of Russia in the Age of Gangster Capitalism, laid out the panorama of After about four years of scientific corruption he found in Russia at the point monitoring, Global Integrity Managing the Soviet Union collapsed. This included

Center for International Media Assistance 11 plunder of natural resources, privatization eyes of readers and viewers to how the schemes, and criminal collaborations government, business and institutions between business and government officials. they relied on really were functioning. In 2004 Klebnikov was shot nine times Eure believed that informed citizens on a Moscow street and bled to death. would respond, at least eventually. Journalists covering corruption throughout Eastern Europe still read his book as they The Branković and Estrada stories illustrate might a text to gain understanding of what what Eure was talking about. People also they can expect to find on their beats. reacted when Ugandan reporters began reporting heavily in 2007 about government “Corruption tactics can be similar to plans to turn a third of Mabira Forest, a the point that they seem developed by pristine and beloved rain forest less than franchise or have been cloned,” said an hour from the capital, into a sugar cane Leonarda Reyes, founder and director of plantation. They organized protests and the Center for Journalism and Public Ethics rallies, handed out bumper stickers, called in Mexico. “This is true for some grand radio stations, and signed online petitions. corruption strategies The government by multinational backpedaled. While corporations and smaller not removed from the corruption in local real The comfort in all this is table, the plantation estate.”16 Reyes, a former that while crime fighters proposal has stalled.17 investigative reporter and reporters may never for Reforma-El Norte, In Russia, it was a golden exposed electoral fraud hope to end or even bed that created an and corruption in the greatly reduce corruption, outcry. In March 2010, awarding of public they can slow it down. the Russian Interior contracts. The comfort Ministry announced in all this is that while plans to buy a bed crime fighters and covered with 24-carat reporters may never hope to end or even gold for a VIP guesthouse used by CIMA Research Report: Covering Corruption Report: Research CIMA Covering greatly reduce corruption, they can slow it foreign dignitaries in Moscow. Word down. Considerable anecdotal evidence and spread through the blog zakupi_news academic research exist on what the media (Purchases), and citizens long used to their can do, in some circumstances, to keep officials’ excesses reacted this time.18 corruption in check. For example, media can: Demonstrate to citizens their own Inform citizens so that they can take responsibility for corruption. Victor Hart, action. The late Rob Eure, a Virginia the chairman of the Trinidad and Tobago investigative reporter who became a much- Transparency Institute, reacted in March traveled journalism trainer in developing to the country’s placing 72nd out of 180 countries during the second stage of his counties in Transparency International’s career, used to preach, “You can’t change 2009 Global Corruption Report by saying what you don’t know about.” As he saw that the public was complacent about it, the media’s vital role was to open the corruption because it was so commonplace.

12 Center for International Media Assistance “We have all grown up in a society of high crime and corrupt politicians in their corruption on an everyday basis. There are true light, not as dashing outlaws but as everyday instances … where we … facilitate rapacious thieves. Even regimes with payments to get goods cleared on ports or suspicious relations toward the press want get building plans approved,” he said. “This their good anti-corruption deeds publicized. is the type of widespread petty corruption In December 2009, the Economic and that is prominent in this country and which Financial Crimes Commission of Nigeria fuels and encourages grand corruption.”19 called for an alliance with media houses so the public could be informed about A 2007 Bosnian project about a labor black what the government was doing for it. A market that was costing the country tax Botswana minister with the Directorate on money meant to fund pensions and health Corruption and Economic Crime recently care insurance emphasized that plenty of asked the media to slow down on reporting job seekers looked for deals that would get about corruption and instead wait for the CoveringCIMA Research Report: Corruption them higher salaries even though they came commission to wrap up investigations at the expense of employers paying into and then get word out to citizens.24 Pippa funds they might well need in the future.20 Norris and Sina Odugbemi in a report for the World Bank’s Communication for Connect citizens to the consequences Governance and Accountability Program of corruption. Many Afghans regard titled Public Sentinel: News Media and corruption as a fact of life and even as a Governance Reform found that the media blessing for the privileged.21 Similarly in can give cover to anti-corruption agencies Eastern Europe and Africa, corruption is that typically are not popular with other seen as the rightful perquisite of belonging officials or agencies they watch over. to a top elite22 But good journalism can These organizations are frequently set up make people see that corruption affects solely for the sake of pleasing donors. By them negatively and directly so that it is winning public support for these groups, harder to be blasé or philosophical about it. the media may help them stay in business. For instance, corruption means shortages of World Bank research suggests that publicity teachers in Sub-Saharan Africa, not enough can encourage whistleblowers to come funds for pensioners in Eastern Europe to forward and witnesses to testify about make ends meet, and buildings constructed wrongdoing. The media is also uniquely of shoddy material in Asia collapsing able to hold anti-corruption agencies and causing deaths. Corruption scares off themselves up to scrutiny, research shows.25 investment and thus jobs. Bangladeshis learned in June 2010 that illegal factories Create an environment hostile to set up in an overcrowded Dhaka slum where corruption; act as a preventative. Elected construction laws are not enforced have officials who know they are subject to consequences after a fire killed 117 people.23 scrutiny by a watchdog press are less likely to engage in corrupt behavior. Bolster government anti-corruption Good newsrooms routinely check travel efforts. The media can make heroes of expenses and read campaign finance officials and agencies trying to combat reports and candidate disclosure forms to corruption, and they can portray organized keep officials honest. Jennifer Bakyawa,

Center for International Media Assistance 13 a former reporter for Kampala’s Monitor seen as the key to unlocking the anti- newspaper, said, “So much corruption corruption chest.” 27 can be stopped just by knowing someone is looking over your shoulder.”26 Bosnian journalists at the Sarajevo center recently succeeded in getting changes Prevention: An Effective Tool to Reduce in that country’s asset declaration Corruption, a 1999 report by The UN form after a series of articles in which Centre for International Crime Prevention, they found forms for 27 leaders argued that preventing corruption was easier incomplete, incorrect, or illegible. than catching and prosecuting it. This report said that “systems whereby senior decision In reality, however, these ideas makers declare their assets … is now widely are difficult to put in place. CIMA Research Report: Covering Corruption Report: Research CIMA Covering

14 Center for International Media Assistance Obstacles and Challenges

Reporting on corruption is a difficult, or land distribution, for example, are dangerous business. While the rewards of much less likely to arouse readers. good journalism that exposes corruption can be great for civil society and good Another problem is that one story on a topic governance, they aren’t always so great or even a series of stories by one media for the journalists who practice it, often outlet rarely is capable of causing an outcry. at considerable risk to themselves. To launch citizen action a story must have “legs” in the journalistic parlance–that is, Public Apathy have many angles so alluring that other media take it up. There is no way to insure

Rarely does mere that this will happen. CoveringCIMA Research Report: Corruption publication of a story Importantly, even where lead to public outrage. Reporting on corruption government normally The exact ingredients for is a difficult, dangerous ignores the wishes of such a story eludes even business. While the the people, when a American journalists, generally inert public who can count on rewards of good does become engaged, its advocacy groups, journalism that exposes influence can be outsized. friendly politicians corruption can be great Marches, petitions, rallies, and an audience with and other displays of an unambiguous view for civil society and good public disapproval in that corruption is governance, they aren’t Uganda, Bosnia, and the wrong. Coronel says the always so great for the Philippines sparked by Estrada story took off media reports have had in part because it was journalists who practice policy consequences. sensational and easy to it, often at considerable Even in such repressive understand. There was risk to themselves. places as Burma and Iran, a clear villain.28 The where “media reports” Mabira Forest story are underground and touched Ugandans because people have online, regimes are pressured to act when walked and brought their children there monks march or students take to the streets. and care about it. Other stories about businessmen dealing with the government Quite in the opposite direction, press critics to usurp Ugandan land went unnoticed. maintain that a steady diet of corruption Similarly, a 2004 story in Bosnia about disclosures, far from engaging the public, bacteria in food sampled around the has significant corrosive effects, teaching country resulted in demands for better citizens they should not trust public officials inspections. People care about food, not or institutions, that politics is little but government regulation per se. Writers empty spectacle and that their country attempting to explain complex or systemic is all bad.29 The South African National corruption, looking at privatization Anti-Corruption Forum complained a few

Center for International Media Assistance 15 years ago that coverage of high-profile come alive. When the Bosnian center ran a corruption there, such as the racketeering project in 2006 about the failure of police and money laundering charges against and prosecutors to act in domestic abuse President Jacob Zuma, “contributes to the complaints, editors objected that they negative phychosis [sic] of South Africa had already run stories on that topic. But being generally corrupt.” Journalists it remains still a top-read feature at the turn that argument around and say the center’s site, because these articles told consequences may be real, but the cause is vivid stories from the point of view of corruption–not reporting about corruption. women whose lives had been ruined. Filled Still the forum suggested the media needed with quotes and description they appealed to go beyond exposés and educate the to readers’ compassion. “Cold, heartless public about corruption and how to stop dossiers don’t do a thing,” Sullivan said. it. Otherwise, citizens feel powerless.30 Readers must be able to see why they should care, Radu said. All the writing about the There is something financial crisis to that notion hitting Eastern of “corruption There is something to that Europe had no fatigue” said notion of “corruption fatigue. impact–until state Lewis of American The public does get worn out or salaries were cut by University. “The a quarter and jobs public does get worn bored. That doesn’t mean we stop began to disappear. out or bored. That trying. We have to be creative.” Reporters who doesn’t mean we have done stories stop trying. We have — Chuck Lewis, American University about corruption to be creative.”31 in Mexico, Bosnia, Bangladesh, Drew Sullivan, founder and still a consultant and Uganda agree, however, that even with the CIN in Bosnia, disagreed. “I compelling stories with a direct and don’t think corruption fatigue exists,” he human dimension will go unread if they said. “I think people get bad journalism consistently fail to bring about results. CIMA Research Report: Covering Corruption Report: Research CIMA Covering fatigue.” Some media, he argued, frustrate Reyes said Mexicans get outraged when people by repeating hearsay and using “corruption activity is unveiled. But then, unnamed sources and obviously unfair outrage evolves into systematic mistrust, or slanted wording. When news media disheartenment, and cynicism. A sense present credible, nailed-down information, of helplessness follows outrage.” clearly explained and connected to Drazen Simic, a Bosnian freelancer who peoples’ lives, they engage their audiences. covers economic issues including corruption, Sullivan noted that the Branković story said, “After constant exposure of corruption had been reported before the center in the media without any legal consequences, took it up, but without documentation or most often people become tired, frustrated, specifics. No one paid attention then.32 and in the end lose interest.”33 Writing compellingly, something rarely stressed in investigative journalism training, Zahid Hossain, who directs the media can make stories about intractable issues segment of a multi-faceted anti-corruption

16 Center for International Media Assistance program in Bangladesh, said citizens shocked by the revelations, prompting there are discouraged when media reports legal investigations into the allegations. of corruption at high levels lead to legal Members of Congress take up the matter proceedings that produce no convictions. in impeachment proceedings, and, under It then just feels like “corruption buried by pressure, a flawed president resigns. The some other corruption,” he said.34 In late conditions that made that sequence of events May, a court in Bangladesh dismissed the possible in the United States nearly 40 last of 15 corruption cases brought against years ago do not exist in many countries. Prime Minister Sheikh Hasina, holding that she had done nothing criminal when “The challenge for media development–and she used government funds to pay for social development in general–is ensuring lobbying in the United States during her that several key institutions of democratic 1996-2001 administration. She was charged society are brought up at the same time,” with wasting the money between the time said David E. Kaplan, director of the CoveringCIMA Research Report: Corruption she left office and her reelection in 2008. International Consortium of Investigative Some say the charges were politically Journalists (ICIJ). “Creating a watchdog inspired by the leader of the military-backed press is doomed to fail unless journalists regime that displaced her, Fakhruddin have reasonably honest police, prosecutors, Ahmed. But he, too, now faces corruption and judges to back them up. They need charges. And Hasina is still contending government auditors, financial regulators, with kickback and extortion charges. legislators who do oversight, and NGO Played out in the media, all of this can leave staff who act as independent voices.”36 readers feeling that everyone is crooked.35 Sullivan said he has to laugh when Hostile Legal Environments Bosnian colleagues tell him, “You lucky Americans. What you do has effects.” Free and independent media work best It wasn’t luck at all, he retorts. It took to combat corruption when working in more than a century to reach the point support of and in tandem with a vibrant civil where a Watergate could happen. society, independent and well-functioning law enforcement and judicial systems, Under the influence of the holistic schools that teach civics and foster social approaches to fighting corruption promoted understanding, and legislative bodies willing by multilateral organizations for at least the to make good laws, including those that past 10 years, few anti-corruption programs protect newsgathering and foster openness. are being funded today that address only the media. Bangladesh is a good example Watergate, the classic American story about of an effort to jump-start a number of exposing high-level corruption, illustrates institutions at once. With USAID funding, a system in perfect form. News reporters– a four-year multi-dimensional program protected by strong free press guarantees called Progati (for Promoting Governance, and a tradition (now law in most places) Accountability, Transparency and Integrity) of protecting the names of confidential began in 2007. Development Alternatives sources–break a story about wrongdoing Inc. runs the program while the International by top government officials. Citizens are Research & Exchange Board (IREX)

Center for International Media Assistance 17 manages the media component. In addition to public records and their function educate pushing for better investigative journalism, the public. For example, Ugandan reporters other parts of the program are bolstering and environmental activists want to see watchdog organizations and advocacy the financial details of the oil-production groups, strengthening the comptroller agreements the government signed with and auditor general’s office and setting four foreign companies. The president’s up a parliamentary budget analysis. The cabinet maintains that they are confidential, reasoning behind the program is that systemic fueling public suspicion. The drama has corruption jeopardizes economic development been heightened by a British research and and therefore tackling corruption is both advocacy firm report saying the contracts worthwhile and requires, as a UN report give the companies a sweet deal and by the put it, “collaborat[tion]with all branches of president’s refusal to show the contracts government and many parts of society.”37 to parliamentary leaders. The controversy has raised awareness of Uganda’s Access to Such experiments aside, in most countries Information Act and of the desirability of institutions develop at an uneven pace. open government, Tabaire and Bakyawa said. Independent journalists–and many media development implementers who see a The Bosnian center seeks documents to free press as a pillar of democratization– buttress every story it publishes, but the push creation of media ahead of judicial access law in that country, while strongly and legislative reforms. The imbalance written, is rarely enforced. Reporters that results presents a question: In the inform readers about bureaucratic hurdles absence of supporting institutions, what they encounter trying to get public records. good does it do for journalists to expose They also go to court to press their cases corruption in places like Romania, Bosnia, for records, and write stories about that. Uganda, and Mexico? Several benefits stem from coverage of corruption, even It alerts international players and in countries where it is endemic: empowers internal groups. Simic in Sarajevo said the media even without action It creates expectations of ethical behavior by prosecutors and judges can still have a CIMA Research Report: Covering Corruption Report: Research CIMA Covering and accountability. “You may never put limited effect by collecting documents and the corrupt into jail,” Sullivan said, “but evidence for international organizations to as important as winning convictions, you use. Transparency International, for example, can expose wrong-doers and hold them up he said, “can use information to create a to society as thieves. Idi Amin didn’t go to more realistic picture about widespread jail, but he was ostracized from his society,” corruption in the country.” Donors upon Sullivan noted, speaking of the late Ugandan whom governments rely also read media dictator who was forced into exile in Saudi reports, noted Bakyawa in Uganda. Arabia in the late 1970s. “Society as a whole is learning from the media to see that Radu’s group operates without good freedom corrupt leaders should not be tolerated.” of information laws and under a famously corrupt government that never acts on its It educates about the need for stories; yet he takes satisfaction from the transparency. Use and publicity about fact he knows they are hurting organized

18 Center for International Media Assistance criminal groups with every story they practice … corruption is in the anti- produce. “There are people out there who corruption commission too and they are care about what you are writing,” he said. politically motivated so that the law cannot “These groups all have a legit component, take its own course. But the media, we have and when you expose them you hamper seen on many occasions, can change the their possibilities to conduct the legal course of action if we press.” The Ugandan part of their business. People who want news media, Tabaire said, continues to to put their money into something do due press Parliament for release of results from diligence, they run the name of the firm a long-suppressed inquiry into misuse of they are interested in through a computer. funds that were supposed to go toward the And your story might change their mind.” 2007 Commonwealth Heads of Government Meeting in Kampala. High-level ministers Azhar Kalamujić, the editor of the Bosnian and others are suspected of having filched center, said corruption reporting can put hundreds of millions of taxpayer dollars. CoveringCIMA Research Report: Corruption citizens and groups such as unions in a stronger position The East African in dealing with newspaper, for government officials. In Bangladesh there are strong example, has fanned “Thanks to news laws against corruption, but the controversy with stories the public they are not put into practice … blunt language such has learned that as: “The patter [sic] politicians even in But the media, we have seen on “is clear and familiar times of recession many occasions, can change the from corruption are increasing their course of action if we press.” scandals of the past: already high salaries A cabal of influential while asking citizens — Zahid Hossain politicians, to accept austerity government measures,” he said. officials and private “After such stories are published politicians contractors sharing the loot after bureaucrats are in far worse position in negotiations award bids with inflated budgets, and get with representatives from unions and hefty kickbacks from the businessmen.”39 associations of citizens. In my opinion, this is one of the most significant benefits It provides context to the level of of newspaper reporting on corruption.”38 corruption in different regions. While a Shorenstein Fellow at Harvard University It pressures other institutions into acting. in 2006, Chuck Lewis wrote about an Hossain in Bangladesh and Tabaire in epiphany he had had visiting Uzbekistan Uganda agree that the media can sometimes nine years earlier. “I had become concerned press weaker institutions into doing the that the extremely dangerous, heroic right thing. “Free and independent media corruption reporting in the world is too can put pressure on the judiciary to act micro, beyond the drama and titillation, in corruption cases,” said Hossain. “In often lacking context and even broad, public Bangladesh there are strong laws against relevance,” he said. “Inside and outside corruption, but they are not put into that repressive country, all citizens–from

Center for International Media Assistance 19 foreign investors and companies with also assigns a measure of the “gap” between offices there to tourists as well as truly anti-corruption rhetoric and action. endangered indigenous human rights activists and journalists–seemed to lack Taken together, the Transparency current, credible online information about International and Global Integrity the quality of governance, rule of law, rankings give nuanced glimpses into civility, press freedom and accountability. countries, which have stirred national There was no satisfactory, comprehensive, pride or embarrassment and generated ‘one-stop-shopping’ organization or news stories and public discussion. website generating such vital insight.”40 Bangladesh, for example is ranked 139 out Lewis went on to adapt the “macro of 180 in the most recent Transparency investigative methodological approach” International ranking and received a rating the Center of Public of 68 (weak) in the Integrity had used to most recent Global examine corruption in Taken together, the Integrity report. The gap state legislatures and Transparency International between rhetoric and real Washington for looking achievement in fighting at entire countries. and Global Integrity corruption is “very The non-profit Global rankings give nuanced large.” Taken together Integrity resulted. glimpses into countries, this means there are both a high perceived level of Lewis sees Global which have stirred national public-sector corruption Integrity country pride or embarrassment and problems with a profiles as a tool and generated news stories number of mechanisms that citizens and enumerated in the journalists should use and public discussion. report, such as executive in conjunction with accountability.42 the annual ratings of countries by level of corruption that the “People were humiliated,” Hossain said, CIMA Research Report: Covering Corruption Report: Research CIMA Covering Berlin-based Transparency International after Bangladesh scored at the bottom of has put out since 1995. Transparency the Transparency International rankings International’s ratings are based on surveys for three years in a row. “Government that measure perceptions about corruption response was very harsh. They did in a country. Global Integrity seeks a more not accept the results. But members of realistic view of corruption, or at least of civil society and the media received the the numerous elements that contribute to information with interest and utmost corruption.41 Using political scientists and anxiety. Time and again media reported journalists on the ground who are already about corruption in Bangladesh and how to writing about corruption, Global Integrity get rid of this cancer from the society.”43 looks at about 300 indicators then assigns Kalamujić said it was news in Bosnia when each country a score of 1 to 100 so that Transparency International showed that it can be compared with other nations in perceptions of corruption there intensified the same region or worldwide. The survey between 2005 and 2009, when it was

20 Center for International Media Assistance ranked 99 of 180 countries. The most Attempts to bribe or co-opt reporters are recent Global Integrity report assigns common in Eastern Europe and Africa. Bosnia a weak score of 63 and calls Radu was once offered a position by the gap “huge.” Bosnia’s comparative a businessman he was investigating. ranking with other countries in the region, Bakyawa in Uganda said that, “you take including other old provinces of the former the bribe, and you will then be exposed as Yugoslavia–it was ranked worst of all– corrupt yourself.” Jahić’s recommendation also made news. In Serbia, Montenegro, for journalists: “Don’t sell yourself Macedonia and Albania, he said, ratings for a dinner or a paid vacation.” improved during those four years.44 More seriously in Uganda, Bakyawa said, Uganda was ranked 130 out of 180 in has been “backdoor hunting” of reporters Transparency International’s latest report by the operatives of officials who have been and was scored 69 (weak) by Global subjects of their stories. The reporters end CoveringCIMA Research Report: Corruption Integrity. Mexico, 89 in the Transparency up beaten, their equipment confiscated. International ranking, was scored 72 (moderate) by Global Integrity. Over the past decade, the government of Ugandan President Yoweri Musevini The Dangers of Reporting has shut down the Monitor and several on Corruption radio stations. A particular target of the president’s has been Andrew Mwenda, a As the CPJ statistics quoted earlier former Monitor reporter who now edits The show, and another CIMA report, Independent in Kampala. He was charged in Under Attack: Practicing Journalism September 2009 with sedition, in addition in a Dangerous World, elaborates, to the 21 criminal counts already lodged reporting on corruption is risky. against him. The latest offense, according to CPJ, which gave Mwenda its International The risks are various and of different Press Freedom Award in 2008, was a intensity. Dino Jahić, assistant editor at the cartoon mocking Museveni’s reappointment Bosnian center, said reporters there get of the same electoral commission chairman telephone and face-to-face verbal threats that who oversaw the controversial 2006 they’ll lose their jobs or that something in presidential polls for the 2011 voting. their private lives will be revealed. Center reporters have been threatened: One woman Mwenda is not the only journalist to be was told she could end up with a broken leg, hit with libel and defamation laws. Most and in one instance a reporter working on of these cases are pending a Supreme cigarette smuggling in Montenegro got a call Court ruling on whether penal code warning him to back off with a mention that provisions under which journalists including his mother–with whom he lived– and dog Mwenda have been charged contradict could suffer. Bakir Hadziomerovic, editor of free speech and press guarantees in the the popular 60 Minutes TV show in Bosnia, Ugandan constitution.46 Bakyawa said the was put under police protection in 2009 government was always careful in charging after receiving a series of such threats while reporting or shutting stations not to tie its working on stories about organized crime.45 action to reporting about corruption. “They

Center for International Media Assistance 21 will find a flimsy excuse and say they were just asking the wrong question in the reporting irresponsibly, breaching national wrong place or of the wrong person.” 47 security,” she said. “When asked to explain, it is never clear what was irresponsible In Bangladesh, Hossain said, “Journalists or what was the security breach.” are regularly harassed, threatened or even killed for reporting corruption of Taking on corruption and organized crime influential persons.” Indeed CPJ research in Mexico and Bangladesh can be deadly. shows that at least 12 journalists, half CPJ reports nine journalists missing since of them working corruption beats, have 2005 in Mexico, most having covered crime been killed over the last dozen years. and corruption. In the past decade, more The murders have not been solved. than 30 editors and reporters have been killed, one-third in retaliation for their work. This kind of violence hints at just how Media houses have been hit with grenades; effective corruption reporting is, CPJ’s homes of newsmen shot up. Congress has Simon suggests. Criminals know journalism failed to pass reforms that would impose has consequences for their pocket and want special penalties it stopped. But murder for attacks on the is also a cost-effective press, and worse, Taking on corruption and and relatively safe way the organization organized crime can be deadly. to reduce unwanted notes, “local and exposure. “Look at state authorities in In the past decade, more the cost benefit of Mexico have been than 30 editors and reporters killing a reporter,” particularly ineffective have been killed, one-third in said Sullivan in solving press- who has lectured related crimes–and, retaliation for their work. internationally in some instances, about the safety appear to have of journalists. “It been complicit.” Mexican journalists will stop the story, and the probability of have responded to the violence with getting caught is nearly non-existent.” CIMA Research Report: Covering Corruption Report: Research CIMA Covering less coverage and fewer stories. In Sullivan’s view, “We have to raise Reyes said that covering political corruption the stakes if we want to disrupt this was relatively safe in that annoying the means of stopping reporting.” wrong person might result only in losing your job or the cancelation of public Lewis invokes the model of the Arizona advertising in your publication. Corrupt Project of the 1970s and wonders if the politicians, she said, “usually signal through same approach is possible internationally. middle people how upset they are and After the murder in 1976 of Don Bolles, threaten in different ways, seldom to the an organized crime specialist on the point of endangering the life of a reporter.” staff of the Arizona Republic, 60 editors, But criminals, “edgy and unpredictable reporters professors, students, and other … might hurt and kill reporters not even news staffers from around the country necessarily investigating corruption– rolled into Arizona to take up Bolles’ story

22 Center for International Media Assistance and teach the lesson that you can kill the managers from different backgrounds can reporter but not his story. Their project was be trained together and publish works that published nationwide. Only one similar individually would not happen or would project has been completed in the United be very dangerous to work on,” she said. States. Some three dozen journalists and volunteers joined the Chauncey Bailey In another tactic, CPJ and numerous Project (http://www.chaunceybaileyproject. journalists’ organizations around the world org) after the Oakland Post editor was are pressing world leaders and parliaments gunned down while investigating fraud for laws calling for additional penalties and violence at an area bakery run by and special prosecutorial measures to deal Black Muslims. No similar project is with attacks on journalists,49 though few known to have been attempted globally. successes have been reported to date.

Journalists also are taking action on their CoveringCIMA Research Report: Corruption The Mexican drug situation on the border, own. CPJ publishes a handbook on safety however, is attracting international intended for war correspondents and urges investigative talent, including from all reporters in dangerous locations to National Public Radio, which recently think about and follow a personal safety aired an impressive piece looking at the plan. Sullivan believes 90 percent of the disproportionate prosecution of some drug risk of reporting can be mitigated if: cartels as opposed to others.48 Reporters in southeastern Europe are increasingly zz newsrooms are secured according to collaborating on cross-border stories of strict procedures, including shredding smuggling, gambling, and other corruption. documents and installing cameras. The power of such networking is not only stories of wider scope and authority, zz editors are kept informed by all but increased exposure and security for members of the staff, and journalists journalists. Kaplan’s ICIJ has put more know that not reporting suspicions than 100 reporters in 50 countries to or threats, even if they seem silly or work tackling corruption issues including insincere, is a firing offense arms trafficking, privatization of scarce water resources, and the collusion zz editors follow through on possible of public officials in corruption. dangers to staff members, including learning to defuse angry and Arana, a former war correspondent, is threatening newsroom visitors. putting her faith in quality journalism and unity as the way to protect Mexican zz journalists know that each suspicion journalists. As the director of the of a threat needs to be dealt with Mexican Foundation for Investigative using measures that include changing Journalism, which began operating in daily routines, working outside May, she is determined to spread the use the office, or hiring guards. of document mining, database analysis, social networking, and other skills. zz information is published as soon as “The goal is that reporters, editors and feasible, on the theory that because

Center for International Media Assistance 23 many murderers are trying to stop their own involvement in or advocacy of stories, rather than seeking revenge, a cause. It is also dangerous to make a the publication of those stories may story personal or an interview challenging. remove a main motive for violence.50 Threatening a target’s honor or capacity and including gratuitous personal information Journalists must also look to their own or misinformation in stories are acts of behavior when considering safety, inexperienced reporters. “The reality is” the experts say. Multiple analyses by said Simon, “a well-reported corruption international journalism watchdog story is dangerous. A badly reported story organizations in recent years show that is even more dangerous, especially in places many reporters were killed because of where people accused react dangerously.”51 CIMA Research Report: Covering Corruption Report: Research CIMA Covering

24 Center for International Media Assistance New Tools, New Hope

With so much to make covering corruption people were being asked for bribes. Charges difficult and dangerous, two trends give were brought against one clerk, and other hope. One is the potential for technology bureaucrats are trying out the idea.52 and social networking as new tools for reporting on and fighting corruption. In ethnically torn Burundi, the World Bank The other is an increasing demand for Institute has been experimenting with specialized and sophisticated training cellphones and radio, trying to get young in the investigative techniques that people, a critical constituency, talking about make for good corruption coverage. politics. It has succeeded in reaching people in remote areas, provided the stabilizing

Digital Media effect that comes from letting people voice CoveringCIMA Research Report: Corruption their views, and it has brought in some tips In a 14-page special about injustices that report on “Telecoms in should be investigated.53 Emerging Markets” The Economist last fall wrote The Internet and social The Internet and social about how “a luxury networking media are networking media also item [the cellphone] spreading through the are spreading through became a tool of global the Third World and in development.” Beyond Third World and in the the process changing economic benefits, the process changing the way the way journalists and article found, affordable journalists and advocacy advocacy groups go about mobile phones with cheap dealing with corruption. texting capabilities are groups go about dealing bestowing political and with corruption. In the countries where social advantages on the Internet remains the developing world. largely uncensored it is harder to silence Protected by the anonymity of the cellphone, criticism or suppress exposés. Russian activists are reporting human rights bloggers have made the most of this, going violations via text messages, the magazine far beyond what the state-dominated pointed out. Citizens call into talk shows media is printing about malfeasance.54 far more often than before to talk about the taboo topic of corruption. Journalists are The Russians also are beginning to publicize using those quotes in articles they did not abuses on YouTube. In a sub-titled parody dare write before. In Pakistan, the magazine of Star Wars called Old Thieves (Starie found, a land office official directed clerks Wori in Russian) stockholders of VTB to submit a daily list of land transfers, expose a $150 million embezzling scheme including the amount paid and the mobile by manager of the country’s second largest phone numbers of the buyers and sellers. bank. (Watch at http://www.youtube. He then did random checks to see whether com/watch?v=xMYLnETH_mk)

Center for International Media Assistance 25 Radu is designing a project he calls The aggregation of supporters and readers, Investigative Dashboard that would put an appeal to young people, and speed. array of database and search engines online and easily available to every would-be There are negatives too. The Internet still corruption reporter in the world. He believes does not reach much of the developing world it may someday ease the reporting work and and is largely used only by young people broaden the scope of reporting on organized even where it is available. Publication on the crime.55 Investigative reporters working Internet exposes small media houses and across borders are already plugged into independent journalism centers to potentially content-sharing systems and networking on ruinous lawsuits that they would otherwise listservs and websites. And on the Internet not be exposed to. As outlined in another articles can be cached for years, providing CIMA publication, Libel Tourism: Silencing a rich archive of investigative journalism. the Press Through Transnational Legal Threats by Sullivan, because the Internet can Kaplan lauds the ability be read anywhere, smart of social networking international criminals media to build audience The pluses of digital and wealthy individuals for crime and corruption can claim damage from reporting: “Within a year, media technology for a story about them in ICIJ has built up a rapidly fighting corruption are Great Britain, where growing Facebook anonymity, censorship libel laws surpassingly community of more favor plaintiffs. This is than 3,400 people in 30 avoidance, interactivity, possible even if the story countries who care about aggregation of supporters has nothing to do with investigative journalism.” and readers, appeal to anyone or any institution The audience, which there. Sullivan said engages in lively online young people, and speed. another problem is that discussion, extends to westerners are often too India, Malaysia, Egypt, quick to apply technology Mexico, Indonesia, Pakistan, and Colombia. indiscriminately in newsrooms where it can CIMA Research Report: Covering Corruption Report: Research CIMA Covering provide no financial benefit. “They can add Finally, Facebook and Twitter make it a burden in places with limited resources,” far easier to move people to action over he said, “and they can be a distraction.” stories of corruption, say both journalists Radu adds a caveat about security. “You and activists. Darko Brkan, an organizer are more exposed when you are online. for the civic action group Dosta (Enough), Lots of criminals in the world use the same credits Facebook groups for rallying methods we do. Our presence on the Web opposition to Branković in Bosnia over enhances the chances of finding us.” graffiti arrests.56 Tabaire said online appeals to sign a petition rallied protestors against Talent and Training the sale of Mabira Forest in Uganda. The pluses of digital media technology Legendary American editor Gene Roberts for fighting corruption are anonymity, used to lecture that the best way to get a censorship avoidance, interactivity, lot of good investigative reporting done

26 Center for International Media Assistance was to hire a lot of good reporters. organizations, including the World Bank, That is not always so easy to do. IREX, IRE, and The International Center for Journalists (ICFJ) do worthwhile The biggest problem getting quality training in investigative reporting. All reporting done on corruption in Uganda are hampered, however, by time and by is inexperienced reporters, Tabaire said. donors’ requirements that they include as He points to coverage of the crucial many participants as possible. This makes 2006 presidential elections, which were for classes of mixed skill level and reduces marked by fraud and preceded by political lessons to the lowest common denominator. maneuvering and bribery. Of the corps Very little advanced-level material is of reporters covering that event, he covered, so that participants walk away from said, 75 to 80 percent were working on trainings with perhaps an appreciation for their first elections. And many will not the field and a general understanding but be around for the 2012 elections.57 no immediately useful skills for covering CoveringCIMA Research Report: Corruption contract fraud or theft through privatization. It takes talent, confidence, experience, and flair to write anti-corruption stories “Media development organizations have that make an impression. There simply a poor memory when they tell you the are not enough good journalists in many practice of parachuting professors in for places, particularly in those countries with workshops is long dead,” Sullivan criticized. poor journalism schools and no tradition “A disheartening proportion of investigative of a free press. Worse, too many training training is still done this way. Body counts programs treat investigative reporting and carpet-bomb training are cheap and as a skill anyone can pick up in well- measureable but they are also ineffective.” planned workshops with star teachers. “I have been in some very fancy “You can no more teach someone to places training,” agreed Radu, who is be an investigative reporter who can one of those teachers, “and quite a few cover corruption over a weekend than participants seemed interested in the you can teach someone to practice shopping mall nearby, not the training.” constitutional law,” said Sullivan. “It’s people who’ve never done investigative To turn out better anti-corruption reporting who propagate this myth.” reporters, it is necessary to:

Skilled investigative reporters are rare, Teach the right people. Radu said pre- even in the U.S., where journalists pick selection of participants would increase up writing skills from childhood, go to the value of training and allow for focused four-year journalism schools that teach classes fit to exact skill levels rather than the craft, and enjoy apprenticeships survey courses. Participants should have through internships and progressively to apply, perhaps, and selection would be more challenging assignments. It can based on evaluations of their work and take a decade to learn how to dig into some reading of personalities. George corruption and high-level crime. Pawlaczyk, an investigative reporter who A number of international and local covers corruption in East St. Louis, IL, said

Center for International Media Assistance 27 investigative reporting is not for everyone. corruption need to learn the mechanics of It involves slow, meticulous work that the sectors most susceptible to graft–such mostly goes unappreciated. “You have to as institutional purchasing practices and be doubtful of authority and willing to court systems. They must learn how to ask questions. You have to be persistent read and interpret public budgets, how to the point of relentless. And you have to bids are awarded, how laws are passed. be accurate and very careful,” he said.58 As for investigative skills, Radu said his ideal class would whittle the lessons Teach them the right things. Journalists down to: how to follow companies across do not know enough about corruption borders; how to investigate a website; how scams or about corruption in general. to find background about an individual; Investigative workshops done in and how to find, share, and use business conjunction perhaps with anti-corruption databases. Radu, in conjunction with ICFJ, NGOs such as Transparency International has published what could be a text for (which trains NGO staff but not journalists) this class: Follow the Money: A Digital or with the World Bank could help. Many Guide for Tracking Corruption.61 He Third World journalists believe they would get participants motivated, he said, need to write only about illegal acts, and then put them to work in groups. yet much corruption is fully sanctioned by existing laws in their countries. Teach them through work. On-the- job training alongside editors or senior Daniel Kaufmann, a former World reporters with experience digging into Bank authority on corruption now with crime and corruption helps to create the Brookings Institution, also makes skilled practitioners. Kaplan’s consortium a distinction between legal corruption holds reporters, some wholly unused to (such as bribery or nepotism which can editing, to high standards of sourcing and be encapsulated in a law) and what others accuracy. Their work is critiqued, and describe as “quiet” corruption.59 This they learn about writing and improve their everyday, less formal corruption results interviewing skills. Kaplan works with from public servants not doing their job reporters of some experience. Sullivan CIMA Research Report: Covering Corruption Report: Research CIMA Covering well, teachers going absent, or professors has recruited beginners or newcomers to accepting small gifts for favors. Journalists investigations for the Bosnian center and need to spend time documenting such for the Organized Crime and Corruption instances as well as on covering cheating Reporting Project, a regional network in presidential elections and major that he and Radu run in southeastern scandals. Too much corruption coverage Europe. The initial plan for the center was lacks sophistication. Journalists need to to keep journalists for a year then send understand how corruption developed– them back into newsrooms with the skills and the role it plays in the societies they and experience to teach others how to cover. They need a reading list that might investigate. That did not work, however, include Klebnikov’s book or articles such because of the long learning curve for as a recent Wall Street Journal piece on the novice investigative reporters. Six years stabilizing effects of reliable corruption.60 after it began, the center is run by Bosnian Journalists who intend to write about editors and turns out high-level projects.

28 Center for International Media Assistance Teach and support investigators through grants to support journalistic projects that locally run centers for mid-career might not otherwise get done and supply journalists. Journalists need to hear war research material and editing support. stories and to learn from colleagues who can speak to them in the same language Bolster journalism schools. Journalists and illustrate lessons with anecdotes who come into investigative training about people and events with which they not knowing the basics of fact-based can relate. Teaching is a different skill reporting and clear writing take longer than corruption reporting and often the to turn into top-flight anti-corruption best practitioners are terrible teachers reporters. Working with local universities and presenters. The blossoming of locally to revamp journalism programs now planned and run journalism centers is heavily weighted with language, literature, heartening. Examples include the Mexican religion and philosophy courses to

Foundation for Investigative Journalism, include more craft would be worthwhile. CoveringCIMA Research Report: Corruption a Dhaka investigative journalism center It would also be difficult. Faculty could created under the Progati program, and the be swayed by new equipment, exchange Centre for African Excellence founded by programs involving travel and retraining Tabaire and Peter Mwesige, a former editor to make some changes. For example, and professor, in Kampala. All bring in USAID put out a request in early 2010 international trainers with specific expertise, for proposals to remake journalism but otherwise rely on in-country journalists curriculums in Afghan universities in and specialists. They also give small partnership with Afghan professors.62

Center for International Media Assistance 29 Recommendations

Journalists and the news organizations working on projects aimed at disclosing that have had the most success combating corruption. Frequently, training programs corruption and pushing for reform in the are conducted by writers who regard areas of Eastern Europe, Asia, Africa, and themselves as investigators but who Latin America studied in this report agree have yet to master the basics of fact- to a remarkable degree on what works. They based reporting and compelling writing, believe that the following is needed: much less the intricacies of tracking off-shore investments, interpreting public ►► Journalists must be schooled in documents or running asset checks. investigative reporting and in specific Even in the West, these kind of advanced techniques useful for tracking and skills come from years not months of documenting corruption and organized hands-on experience under the tutelage of crime connections. This kind of reporting knowledgeable editors and news directors. represents the most difficult and complex of journalistic tasks, yet it too frequently ►►Local journalists with these skills such is being tackled by inexperienced and ill- as the founders of the African Center trained reporters for Media Excellence working under should be financially editors and Training organizations— supported and directors little and the donors who support encouraged. Cross- more advanced. border exchanges They too often them—must honestly assess of successful make mistakes or the difficulty of the journalism investigations and fail to present fully task they undertake when techniques should be credible cases encouraged. And the of wrongdoing. planning seminars and courses use of foreign trainers– The credibility usually but no longer CIMA Research Report: Covering Corruption Report: Research CIMA Covering in investigative reporting. of journalistic exclusively western– reports on as editors working corruption is crucial to winning with teams of local reporters should be public notice and support. regarded not as cultural hegemony but as legitimate bi- or multi-cultural efforts. ►► Training organizations–and the donors Local non-governmental organizations who support them–must honestly assess that oppose corruption need to be enlisted the difficulty of the journalism task they for training reporters more often. undertake when planning seminars and courses in investigative reporting. Quick ►► Particular note should be made of and shallow surveys of investigative the need for training in investigative techniques taught by generalists interviewing. Journalists who report rather than specialized journalists do on corruption should never make their not adequately prepare reporters for reporting personal. They should be polite,

30 Center for International Media Assistance fair, and even-toned, not insulting example, customs and road- nor insinuating. They should not building–are particularly prone project themselves as advocates. to corruption nearly everywhere. By concentrating on such hot ►► Media houses must themselves be spots journalists are likely to transparent and free of corruption. have high impact and may also Their ownership, newsgathering take advantage of opportunities methods, and journalistic ethics to share reporting expertise and must be open to inspection if their sources. reports about corruption elsewhere in society are to be trusted. •• a system of reporting and acting upon threats, including ►► Journalists should engage with guidelines for when to call in

colleagues in other media in authorities. CoveringCIMA Research Report: Corruption their countries and with those in independent journalism centers •• secure systems for physically elsewhere in their region. Organized protecting offices, and crime linked to governments work techniques for interviewing in across borders and the consequences dangerous situations, including of high level corruption rarely are team reporting and the use confined to one nation. Cooperation of monitoring technology. leads to more effective reporting, better story selection, and improved ►► Reporters who tackle corruption as chances for attention and action. a beat must define it in the broadest sense, as actions by public and ►► Investigative reporters working on business officials that are improper. corruption stories need a detailed plan to help insure their personal safety and ►► Thinking about “results” when it must insist that their media house have comes to corruption reporting must an office-wide plan in place. Elements change. In places like Eastern Europe of such a plan should include: and Africa reporters are discouraged when long and difficult investigations •• a considered assessment of result in little reaction and no change. the likelihood of danger and They tend to leave journalism and seek impact to be applied to the higher-paying jobs elsewhere, costing selection of all stories. Where the field the most knowledgeable reporting is dangerous it is more and experienced talent. The best effective to work on the most investigative reporters in transitional meaningful stories and do fewer countries know that in the Internet age of them, rather than to take a what they write does not disappear. scattershot approach and report It is reposted, picked up, archived. on every tip of wrong-doing and Years after an initial publication, malfeasance. Certain money-rich a story about a corrupt business or and under-regulated sectors–for official still has life and still can have

Center for International Media Assistance 31 an effect. In addition to sparking they are still denied access. They criminal proceedings, resignations, need to explain to readers why and legal reforms, stories can have this is important. Without a way to impact by hindering the legitimate obtain and inspect government and business aims of suspect firms. Due business documents there is no way diligence searches that turn up well- to find out how authorities are really supported articles about corruption can doing their jobs for the public. stem the flow of investment into the legitimate arms of criminal concerns. ►► Journalists must lobby and raise public awareness about the need for effective ►► For maximum impact, investigative mechanisms to support whistleblowers. stories should be presented in at least Views on “tattle-tales” vary by culture, bilingual format rather than in local and western rules on protecting languages alone. Stories in English are principled witnesses to corruption picked up in a wider array of websites who come forward to the media need and are more likely to be copied and to be studied and adapted to other read by different audiences. Spanish, cultures. Journalists everywhere Swahili, Chinese and other appropriate should consider safeguards, including alternatives should also be considered. tools such as hot lines, for important sources who risk jobs and lives for ►► Corruption reporters should make it the sake of exposing wrong-doing. their goal to change the expectations of their readers and viewers about ►► Journalists need to take advantage getting equal treatment at the hands of actions by foreign governments of their public officials. In too many that promote the power of the press. places corruption and graft is seen as For example, under the Daniel Pearl a “way of life,” an immutable practice Freedom of The Press Act, the U.S. about which little can be done. The State Department expanded its best one can hope for, these citizens scrutiny of news media restrictions and believe, is that someday they, too, can intimidation as part of its assessment CIMA Research Report: Covering Corruption Report: Research CIMA Covering break into the elite and gain favored of the human rights records of treatment. By writing in clear, concrete countries it does business with and terms about the real consequences and gives aid to. The World Bank and schemes of the corrupt, reporters can the European Union similarly limit change views. Corruption reporting loans and restrict interactions with needs to offer solutions, hope and corrupt and repressive regimes. encouragement that things can change.

►► Journalists need to lobby and raise ►► Journalists must hold NGOs as public awareness about the need for accountable as they do public officials strong freedom of information laws when writing about problems and in their countries. Where these laws corruption. A functioning civil society– have been adopted, journalists need like an independent judiciary and to use them and press the issue if functioning police and investigatory

32 Center for International Media Assistance agencies–amplifies the effect of informing the public and becoming journalism in cleaning up societies. crusaders and advocates. Where these segments do not exist or do not perform well, journalists ►► Journalists tackling corruption in must demand better performance. countries without strong institutional support must secure continued financial ►► Journalists would do well to embrace backing for their undertaking. Reporting the Internet and social networking on corruption that is sporadic and outlets such as Twitter and Facebook, short-lived is pointless. But sustained which bring citizens more quickly into investigative journalism with follow- social debates without the filter of news through and suggested solutions is organizations, government ministries expensive. Reporters working in or NGOs. They should milk these independent investigative centers can

media for ideas and sources. At the use training in fund raising, program CoveringCIMA Research Report: Corruption same time journalists worldwide must development, and business practices, grapple with the balance between including budgeting and purchasing.

Center for International Media Assistance 33 Endnotes

1. Marc Lacey, “Fearing Drug Cartels, 11. Material for Branković taken from Reporters in Mexico Retreat,” New author’s experience, personal interviews York Times, March 13, 2010, http:// with Drew Sullivan and Azhar Kulumujić. www.nytimes.com/2010/03/14/ See also “A Lucky Real Estate Deal,” world/americas/14mexico.html. Center for Investigative Reporting, September 4, 2007, http://www.cin.ba/ 2. Ibid. Stories/P15_Railways/?cid=756,1,1.

3. Ana Arana, phone and email 12. Sheila S. Coronel, “Can a Free Press interview with author. Fight Corruption? Lessons from the Asia- Pacific Region,” Tackling Corruption, 4. Paul Radu, phone and email Transforming Lives, Accelerating Human interview with author. Development in Asia and the Pacific, United Nations Development Programme; 5. Bernard Tabaire, personal Reprint edition, July 29, 2008. interview with author. 13. Joel Simon, phone interview with author. 6. Joel Simon, phone interview with author. 14. Chuck Lewis, phone 7. “Russia: Thirteen Murders, No Justice,” interview with author. Special Report, Committee to Protect Journalists, November 1, 2006, http://cpj. 15. Nathaniel Heller, email org/reports/2006/11/russia-murders.php. interview with author.

8. Ellen Barry, “Moscow Crime Reporter, 16. Leonarda Reyes, email Facing His Obituary Daily,” New York interview with author. Times, June 6, 2009, http://www.nytimes. CIMA Research Report: Covering Corruption Report: Research CIMA Covering com/2009/06/07/world/europe/07russia.html. 17. Bernard Tabaire, personal interview with author. 9. Luke Harding, “To be a journalist in Russia is suicide,” The Guardian, 18. Alexander Osipovich, “Bloggers November 24, 2008, http://www. battle corruption in Russia,” AFP, guardian.co.uk/media/2008/nov/24/anna- March 13, 2010, http://www.google.com/ politkovskaya-russia-press-freedom. hostednews/afp/article/ALeqM5jFAiz1_ H2jpeRCFQsU4N2fHFPw2A. 10. Clifford J. Levy, “Russian Journalists, Fighting Graft, Pay in 19. Alexander Bruzual, “Society of Blood,” New York Times, May 17, 2010, Corruption,” Trinidad and Tobago’s http://www.nytimes.com/2010/05/18/ Newsday, March 20, 2010, http://www. world/europe/18impunity.html newsday.co.tt/news/0,117633.html.

34 Center for International Media Assistance 20. See “Ready to Retire but Stuck in records at http://www.cin.ba/Home.aspx. the Black Labor Market,” Black Market Labor project, Center for Investigative 28. Sheila Coronel, “Can a Free Press Reporting, February 19, 2007, http:// Fight Corruption,” 978-980. www.cin.ba/Reports/1/?cid=693,1,1. 29. Coronel, “Can a Free Press Fight 21. Douglas Wissing, “Cultivating Corruption,” 980. See also “Political Afghanistan: Battling Afghan Corruption,” corruption has impact on social trust,” a Indiana Public Media, February press release for a story by Sean Richey 5, 2010, http://indianapublicmedia. of Georgia State University, March 2, org/news/cultivating-afghanistan- 2010, http://www.eurekalert.org/pub_ battling-afghan-corruption/. releases/2010-03/gsu-pch030210.php.

22. Alina Mungiu-Pippidi, “Corruption: 30. Meeting of the National Anti- CoveringCIMA Research Report: Corruption Diagnosis and Treatment,” Journal of Corruption Forum, March 12, 2007, Democracy, Vol. 17, No. 3, July 2006, 86-99. South African Government Information, previously available at www.info.gov. 23. AFP, “Bangladesh Mourns After za/speech/2007/07031311151001.htm. Deadliest Fire,” Herald Sun, June 5, 2010, http://www.heraldsun.com.au/news/world/ 31. Lewis, phone interview with author. bankgladesh-mourns-after-deadliest- fire/story-e6frf71f-1225875913044. 32. Drew Sullivan, personal interview with author. 24. Ephraim Keoreng, “Minister tells media to go slow in graft reporting,” MmegiOnline, 33. Drazen Simic, email and December 15, 2009, http://www.mmegi. personal interview with author. bw/index.php?sid=1&aid=102&dir=2009/ December/Tuesday15. 34. Zahid Hossain, email interview with author. 25. Fumiko Nagano, “Friend or Foe? Media’s Role in Anti-Corruption Work,” 35. “Bangladesh drops leader Sheikh People, Spaces, Deliberation blog, Hasina corruption case,” BBC, May CommGAP, June 29, 2009, https://blogs. 30, 2010, http://news.bbc.co.uk/2/hi/ worldbank.org/publicsphere/friend-or- world/south_asia/10194392.stm. foe-medias-role-anti-corruption-work. 36. David E. Kaplan, email 26. Jennifer Bakyawa, personal and interview with author. email interview with author. 37. “Prevention: An Effective Tool,” 7. 27. Prevention: An Effective Tool to Reduce Corruption, Global Programme Against 38. Azhar Kalamujićin, email and Corruption of the United Nations Centre for personal interview with author. International Crime Prevention, December 1999, 29-31. See also stories based on asset 39. “CHOGM – Let PAC Name and

Center for International Media Assistance 35 Shame Them All,” May 17, 2010, http:// it,” Guardian, June 15, 2008, http://www. allafrica.com/stories/201005180054.html. guardian.co.uk/media/greenslade/2008/ jun/15/ipidirectortoserbianpresid. 40. Chuck Lewis, “The Growing Importance of Nonprofit Journalism,” 50. The CPJ Handbook is available at Working Paper Series of Joan http://www.cpj.org/reports/2003/02/ Shorenstein Center on the Press, journalist-safety-guide.php. CPJ Politics and Public Policy, 2006, 16. Information on Sullivan’s plan comes from an undated memo he wrote detailing 41. Lewis, interview, elements of a “Safety and security when reporting on OC”for a chapter in an 42. TI ranking and GI scoring for unpublished book on organized crime. Bangladesh and other countries available at websites of each organization. See http:// 51. Simon, interview. www.transparency.org/policy_research/ surveys_indices/cpi/2009 and http://report. 52. “Eureka Moments,” part of the report globalintegrity.org/globalindex.cfm. “Telecoms in Emerging Markets” in The Economist, September 26, 2009, 5. 43. Hossain, interview. 53. Tim Carrington, “Cell Phones Can 44. Kalamujić, interview. Counter Corruption,” The World Bank Institute, January 29, 2009, http://web. 45. “Unsafe environment for journalists worldbank.org/WBSITE/EXTERNAL/WB in BiH,” Human Rights House, I/0,,contentMDK:22063135~pagePK:20902 Sarajevo, November 18, 2009, http:// 3~piPK:207535~theSitePK:213799,00.html. humanrightshouse.org/Articles/12486.html. 54. Osipovich, “Bloggers Battle Corruption.” 46. “Attacks on the Press 2009: Uganda,” Committee to Protect Journalists, 55. Paul Radu, http://investigativedashboard. http://cpj.org/2010/02/attacks-on- org/?page_id=2. CIMA Research Report: Covering Corruption Report: Research CIMA Covering the-press-2009-uganda.php. 56. Darko Brkan, personal 47. Reyes, interview. interview with author.

48. John Burnett, Marisa Peñaloza, 57. Tabaire, interview. and Robert Benincasa, “Mexico Seems to Favor Sinaloa Cartel in Drug War,” 58. George Pawlaczyk, phone National Public Radio, May 19, 2010, interview with author. http://www.npr.org/templates/story/ story.php?storyId=126906809. 59. Daniel Kaufmann and Pedro C. Vicente, “Legal Corruption,” 49. See, for example: Roy Greenslade, November 24, 2005 http://siteresources. “IPI director to Serbian president: don’t worldbank.org/INTWBIGOVANTCOR/ let murderers of journalists get away with Resources/Legal_Corruption.pdf.

36 Center for International Media Assistance 60. Raymond Fisman, “Corruption 62. “Establishment of University You Can Count On,” Wall Street Partnerships in Journalism with Kabul Journal, April 3-4, 2010, p. W3. University, Afghanistan”, USAID, April 12, 2010, http://www07.grants. 61. Paul Radu, “Follow the Money: A gov/search/search.do;jsessionid=FJLh Digital Guide for Tracking Corruption,” LkhJMM5Pfzyg9V1b2X5DxQZbzmy International Center for Journalists LJQRZL36Sn1B716PyLYLQ!156568 http://www.icfj.org/Resources/ 4004?oppId=53666&mode=VIEW. FollowtheMoney/tabid/1170/Default.aspx.

Advisory Council for the Center for International Media Assistance

David Anable Craig LaMay

Patrick Butler Caroline Little

Esther Dyson The Honorable Richard Lugar

William A. Galston Eric Newton

Suzanne Garment William Orme

Karen Elliott House Dale Peskin

Ellen Hume Adam Clayton Powell III

Jerry Hyman Monroe E. Price

Alex S. Jones The Honorable Adam Schiff

Shanthi Kalathil Kurt Wimmer

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