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The COVID-19 pandemic provides the perfect opportunity to investigate and quash corruption in the UN’s aid agencies by Avagay Simpson

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A man throwing a bottle to another man on a UN truck

More than 100 million people across the world living in war zones and other emergency settings are dependent on humanitarian assistance facilitated by the UN. These populations are likely to be profoundly affected by the COVID-19 pandemic and require support now more than ever. The UN that in recent years has been fraught with corruption incidents and has witnessed the siphoning of humanitarian aid funds by aid workers now faces two choices. It can either fail to adequately monitor aid allocated to the fight against the pandemic that can allow corrupt practices to continue, or it can seize the opportunity the crisis presents to boldly fight corruption by reviewing and rethinking its aid allocation practices.

In 2018, ten years after Haiti’s devastating earthquake, I wrote a blog article here asking where the money allocated to humanitarian aid in Haiti had disappeared to. This article raised questions about the accountability of aid workers and the lack of transparency in international aid. Fast-forward to today and these questions are even more potent. An undercover investigation by the CNN revealed that dozens of areas in war-torn Yemen were receiving aid on paper but, in reality, war victims were not being helped. It also highlighted that the UN in 2018 found that 1% of aid allocated globally was going missing.

On 5 August 2019, AP in an article titled ‘UN probes corruption in its own agencies in Yemen aid effort’ reported that a WHO worker had tipped off Houthi rebels about ongoing investigations of the UN’s aid in Yemen for fear that her theft of humanitarian funds would be exposed. This resulted in the Houthi rebels confiscating computers with critical information before investigators could board a flight to Yemen.

Yemen is the poorest country in the Arab world and has been going through a civil war since 2015. This civil war has been named the worst humanitarian crisis of our time: “more than 3.3 million people have been displaced; and 80% of the population need assistance and protection, including 10 million now reliant on food aid.”[1] Despite Yemen’s situation having been labelled the worst humanitarian crisis at present, the UN, whose mandate it is to solve international humanitarian crises, is failing to help the Yemeni people. This case illustrates that some UN representatives have strayed from the core mandate of the organisation and have instead opted for rent-seeking activities pursued in their own interest. It is alleged that billions of dollars were deposited in the personal accounts of UN staff in Yemen with suspicious contracts with monies not reaching the Yemeni people. How is this possible?

The Office for the Coordination of Humanitarian Affairs (OCHA) of the UN Secretariat is responsible for coordinating responses to emergencies and is supposed to manage, monitor, and deliver effective aid. But how robust are these monitoring systems? What mechanisms have been put in place by the UN to safeguard the transfer of money to the field, particularly to emergency zones?

Over the years, the UN has taken the initiative to address transparency and accountability issues in its organisations. In 2007, the United Nations Transparency Accountability Initiative (UNTIA) was launched to ensure that the billions of dollars contributed to aid would be delivered to those who need it most. Other initiatives preceding the UNTIA focused on enhancing the effectiveness of aid; some strategies include the development of codes of conduct, policy manuals on finance, complaint mechanisms, staff rotation schedules, resource tracking systems, and supply chain management.

These mechanisms are evidently not working, as in 2019 there were several other reported cases of corruption in humanitarian aid. These include the disappearance of US$18 million in aid funds from the UN, the EU and Saudi Arabia in Somalia. The Somalian Government received the funding, but the monies did not make it through the Central Bank’s treasury account. Similarly, in May 2019 it was revealed that the UN in 2018 found that millions of dollars had been stolen in Uganda. A whistle-blower in the government made the report and subsequent investigations by the UN European Anti-Fraud Office (OLAF) and Uganda’s government revealed that the number of reported refugees was exaggerated and the additional resources intended for these people stolen.

Clearly, despite the UN having several measures to improve accountability, the results are not supportive. While humanitarian crises are very complex, with vast, changing resource levels creating opportunities for corruption, sufficient emphasis on corruption prevention could help to nip it in the bud.

Rebecca Affolder (2017) in an analysis titled ‘An Accountable United Nations Development System for the 21st Century’ noted that the UN for the past 40 years has been consistent in developing proposals and blueprints to improve transparency and accountability but has failed to implement these sufficiently. She emphasised that the UN’s failure to implement reforms has resulted in ‘trust’ issues within the UN, between organisations, member states and civil society.

A 2008 report by Transparency International on preventing corruption in humanitarian assistance highlighted that even though mechanisms and policies exist to ensure transparency and accountability in humanitarian aid, these oftentimes are not put into practice. The report also indicated that complaint mechanisms are often not readily accessible to the public and in some instances only exist for staff.  The report also indicated that the majority of the staff interviewed from these participating agencies did not rate corruption prevention as a priority of their agency.

Given the nature of humanitarian aid, one may argue that it is difficult to focus on transparency and accountability when the primary aim is to save lives. Some may even go further to say that putting greater emphasis on corruption prevention may divert well-needed human resources require to help the needy. But think about how many could have been helped if there had been better accountability. The UN needs to rethink its approaches to humanitarian aid and implement measures to ensure that these accountability mechanisms are working as they should.

Amid the COVID-19 pandemic, more than 100 million people are living in war zones and other emergency settings who depend on UN humanitarian assistance.[2] The OCHA is mandated to protect the people living in these areas and to ensure that they are receiving the intended aid and protection. This pandemic has created an environment ripe for corruption, but also presents a window for the UN to increase its fight in the war against corruption. Now is an opportune time to review, rethink, and act.

The UN is an important player in world humanitarian relief but needs to take a bold step in the fight against corruption. Its failure to act now means that sooner rather than later its legitimacy will be questioned—to the detriment of those in need of assistance.

[1]BBC News (August 1, 2019) “Yemen war: Has anything been achieved?” https://www.bbc.com/news/world-middle-east-49179146
[2] https://www.unocha.org/story/un-calls-global-ceasefire-combat-%E2%80%98common-enemy%E2%80%99-covid-19

About the author:

Avagay SimpsonAvagay Simpson is a graduate of the International Institute of Social Studies with a master’s degree in Development Studies specialising in Governance and Development Policy.  Her research interest are the governance of international humanitarian aid, non-profit governance, anti-corruption, and Public Policy. She also holds a master’s degree in International Relations and currently works as a consultant in Jamaica.

Image Credit: UN Photo/Marco Dormino on Flickr.

 

Reporting or turning a blind eye? Police integrity in Uganda by Wil Hout and Natascha Wagner

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Imagine that you are a police officer and witness a close colleague accepting a bribe. Would you report this behaviour or turn a blind eye to it? 600 police officers in Uganda answered similar questions relating to a variety of cases of undesirable police conduct. A series of recent publications by Dr Natascha Wagner and Professor Wil Hout, with ISS alumna Dr Rose Namara, shows that officers who participated in an accountability project were influenced positively in their attitudes towards desirable and undesirable police behaviour.

The arrest of Ugandan musician, businessman and opposition politician Bobi Wine in August 2018 caused world-wide attention to the brutal behaviour of the Ugandan police force. This crackdown on a popular figure in the country added to the already bad reputation of Uganda’s police, which is commonly seen as violent and corrupt.

Democratic theory sees the police, next to the army, as the ‘strong arm’ of the state. These institutions are faced with a ‘paradox of power’: they possess important coercive tools that should be used to protect the state and its citizens, but could also be employed to attack those whom they should protect. For this reason, accountability mechanisms are created to ensure that police behaviour respects the principles of the rule of law. Countries with a robust rule of law mechanism, such as The Netherlands, subject the police to strict political and legal oversight. Police officers who ‘cross the line’ and engage in unacceptable behaviour will likely be punished, although recent reports on the code of silence in the police force in The Hague suggest that this may not always be self-evident.

Similar mechanisms do not apply to the same extent to Uganda, which is widely seen as an imperfect democracy, with many traits of so-called ‘competitive authoritarianism’. The country holds regular elections, but political liberties are seriously impeded by the rulers of the country. President Yoweri Museveni’s regime, which has ruled Uganda since the removal of Obote in 1986, regularly uses the police force to repress oppositional forces that may threaten its hold to power. The recent setup of a Field Force Unit for handling riots and demonstrations, according to some observers, is one example of the militarisation the Ugandan police, and could represent a further step to using the police for regime support.

In this seemingly hostile context, the Police Accountability and Reform Project was implemented by the Ugandese NGO HURINET with the financial help of the Dutch Embassy in Kampala. The project aimed to improve relations between civil society, the media and the police by organising dialogues, and inform the public about the work of the police. These activities were meant to strengthen police accountability mechanisms.

The evaluation department of The Netherlands Ministry of Foreign Affairs brought in a team from ISS to assess, among others, the police accountability project. The ministry was interested to see to what extent its ‘good governance’ policies in various countries had been effective. Our aim in relation to the project on police accountability was to estimate whether it impacted the attitudes of Ugandan police officers. We concluded that the project in all likelihood contributed positively to the attitudes of police officers regarding desirable and undesirable police activities.

Our research project consisted of different activities. One important element was a survey among a large group of police officers, drawn from districts across Uganda, with the help of a dozen cases of police behaviour. Based on earlier research on police integrity, we let police officers evaluate a variety of cases (or ‘vignettes’), among others relating to police officers who take bribes, steal from a burglary site, and refuse to record a complaint about torture by one of the officer’s colleagues, and, to a District Police Commander who orders a violent response to a demonstration, leaving 20 people dead. Police officers who participated in the project appeared on average much more critical about the misbehaviour depicted in the cases, while they were also more likely to report a colleague for misbehaving. They were more inclined to see the behaviour as a violation of official policy and were more supportive of disciplinary action against misbehaving colleagues.

Interviews with 23 police officers, selected from the higher ranks, supported the findings from the survey. Overall, officers who participated in the accountability project had clearer ideas about human rights norms, the proper treatment of arrestees and relations with the community. The responses of those police officers were credible signs of the norm-setting impact of the accountability project.

Overall, our findings show that it pays off to engage police officers in discussions about acceptable and non-acceptable behaviour, even in a difficult environment such as Uganda. Obviously, the spreading of norms about police behaviour is just one element in creating a better functioning police apparatus. A shift in attitudes does not necessarily represent a reversal of behaviour, since the latter is influenced by many factors other than attitudes. The accountability project in Uganda demonstrated the usefulness of working with the police, although longer-term collaboration may be necessary for achieving permanent results. This may be an important lesson for improving police operations in other countries where accountability and rule of law are a concern.

Publications:
Wil Hout, Ria Brouwers, Jonathan Fisher, Rose Namara, Lydeke Schakel and Natascha Wagner (2016) Policy Review Good Governance: Uganda Country Study, Report for the Policy and Operations Evaluation Department (IOB), Ministry of Foreign Affairs, available at http://hdl.handle.net/1765/102964. This report contains the vignettes that were used in the survey among police officers.
Natascha Wagner and Wil Hout (2019) ‘Police Integrity and the Perceived Effectiveness of Policing: Evidence from a Survey among Ugandan Police Officers’, in Sanja Kutnjak Ivković and M.R. Haberfeld (eds) Exploring Police Integrity: Novel Approaches to Police Integrity Theory and Methodology, New York: Springer, pp. 165-191, available at http://hdl.handle.net/1765/115822.
Natascha Wagner, Wil Hout and Rose Namara (2020, forthcoming) ‘Improving Police Integrity in Uganda: Impact Assessment of the Police Accountability and Reform Project’, Review of Development Economics, available at http://hdl.handle.net/1765/121705.
Wil Hout, Natascha Wagner and Rose Namara (2020, forthcoming) ‘Holding Ugandan Police to Account: Case study of the Police Accountability and Reform Project’, in Sylvia Bergh, Sony Pellissery and Christina Sathyamala (eds) The State of Accountability in the Global South: Challenges and Responses, Cheltenham: Edward Elgar, available at http://hdl.handle.net/1765/115862.

_DSC4072-3.jpgAbout the authors:

Wil Hout is Professor of Governance and International Political Economy at the International Institute of Social Studies (ISS) of Erasmus University Rotterdam. His research interests relate to international political economy, regionalism, development policies and issues of governance and development.

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Natascha Wagner is associate professor of Development Economics at the ISS. Her research interests lie in international economics, development, health and education. She has participated in various impact evaluation projects and large scale data collections in Africa and Asia ranging from public health to good governance and sustainable development.

Norms: How can we start tackling something so often ignored in governance work? by Katie Whipkey

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What do you get when you cross university researchers, development aid practitioners, and a few people somewhere in between? This sounds like it could be the start to a good joke, but it could actually be the start of something much more meaningful. A group of 19 researchers and practitioners got together at the CARE Nederland office to talk about a major gap in the research literature and development practice: governance norms.

Yes, norms are a hot topic in research and development and much attention has been given to considering gendered norms, corruption, and other very important topics. But, thinking about how norms interact with governance systems is something that is rarely addressed head-on. CARE Nederland decided to convene this group to start the conversation.

So, what do norms have to do with governance? Perhaps more than you might think! Governments and public authorities worldwide are faced with norms every day. It could be something as simple as community members at the village level being expected to buy a drink for their local representative in order to get a small need met or as complex as maintaining power for an ethnic group at the national level. Regardless of what it is, many studies have been undertaken to try to understand different types of norms in a variety of sub-themes and numerous interventions have been launched to change them. Despite this variety of studies and interventions, few have directly tackled the theme of norms in governance directly.

There are many definitions of what constitutes a norm, but for the sake of this conversation, we’re using a shared understanding that a norm is a collective belief that influences what behaviors people do. A norm is a norm because it relies on others, whereas an attitude, for example, could be an independently-held belief. Norms could be about what people believe others are doing and about what people believe others think they should be doing. Norms can directly translate into a behavior or there could be many norms that collectively influence a behavioral outcome. Certainly, some norms are stronger than others; norms can range from being essentially obligatory in a society to something just relatively common or possible. All this in mind, of course, public authorities will encounter norms every day in many aspects of their jobs.

Norms often persist due to the propensity for solidarity, reciprocity, and a sense of obligation. In other words, corruption norms often persist because officials are expected to take care of their own. If a norm is socially accepted, it is legitimized and likely to persist even if it is damaging. For example, if a norm exists that public officials must take bribes and a new, well-meaning public official decides to break this norm, then he/she could risk being ostracized from colleagues or even risk losing his/her job. Regardless, norms require reference groups (these are the people who others believe dictate whether a norm is accepted) and sanctions (punishments or rewards for breaking or upholding the norm). In our example here, the reference group would be peer public officials and the sanction would be being ostracized or losing the job.

We should consider putting power at the center with many forces such as institutions, individuals, resources, social structures, and societal morals and values all working to create and maintain norms. And of course, people experience power dynamics and inequalities differently, so the intersectionality of power is also a driver of governance norms.

In general, norms are part of an ecosystem. They persist from the macro to the micro and can be experienced differently in different parts of the ecosystem. Norms can be changed by drivers such as the economy, through official mechanisms such as law changes, or through personal motivations from awareness raising or other activities. In fragile and conflict settings, there may be a mismatch between traditional and modern norms that could create tensions between sub-groups. In governance processes, this could create a fundamental divide between more modern or national government systems and more traditional or local governance processes, which could be a driver for enabling such norms to persist.

We have a lot of considerations if we want to tackle this issue together. Not least of all are our ethical considerations: Who are we to change a deeply-held norm? How do we balance incentives such as development aid if we tie them to norm change? How do we ensure that we’re not entangling our personal values with what is truly best for communities? How do we generate internal motivations for communities to change norms on their own? These questions and so many more are important considerations for both researchers and practitioners.

By the end of the first meeting, it was quite clear that we still have a lot of work to do to understand governance norms. We must first understand and then seek to challenge governance norms if we want to make meaningful progress toward sustainable and inclusive governance processes worldwide.

This blog was based on a working group event for experts in the topic of social norms in The Netherlands on 1 July 2019 and was originally published here. The event was sponsored through the Every Voice Counts project of CARE Nederland, funded by the Dutch Ministry of Foreign Affairs.

Members of the social norms expert group include: Emmely Benschop (The Hague Academy of Local Governance), Sylvia Bergh (International Institute of Social Studies, Erasmus University Rotterdam), Lori Cajegas (CARE Nederland), Ben Cislaghi (London School of Hygiene and Tropical Medicine), Jacopo Costa (Basel Institute on Governance and University of Basel), Ine Cottyn (Clingendael Institute), Marleen Dekker (Leiden University African Studies Center), Volkert Doop (VNG International), Edin Elgsaether (Netherlands Institute for Multiparty Democracy), Elsbet Lodenstein (Royal Tropical Institute), Berlinda Nolles (CARE Nederland), Pavithra Ram (RNW Media), Ambra Scaduti (Oxfam Novib), Reintje van Haeringen (CARE Nederland), Merlijn van Wass (CARE Nederland), Fatma Wakil (CARE Nederland), Katie Whipkey (CARE Nederland), Karin Willemse (Erasmus School of History, Culture and Communication) and Franz Wong (Royal Tropical Institute).

Image Credit: Mehzabi on Wikimedia. The image was cropped.

About the author:

katie whipkeyKatie Whipkey is the Policy, Research, and Communications Officer for the Every Voice Counts programme at CARE Nederland. Katie joined CARE in February 2019 to work on promoting inclusive governance and expanding the voice of women and youth in fragile and conflict-affected settings through evidence-based research. Prior to CARE, Katie worked at RAND Corporation as a policy analyst. Katie has an MSc in Public Policy and Management from Carnegie Mellon University.

The role of the media in promoting water integrity: the case of Ghana by Abdul-Kudus Husein

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Ghana’s water utilities are undermined by corruption, impeding the ability of millions of Ghanaians to access safe water resources. The media can play an important role in pushing back corruption in several ways. But often, the media’s potential as watchdog is not fulfilled. This article highlights the key challenges that the Ghana’s media sector faces and argues that it is not likely to ensure greater water integrity without support from the government, the private sector, and civil society.

It is 6am on a Saturday morning and Charity Abiamo, a street vendor of oranges, is on a daily mission with her three children to find water. Charity and her children live in Abofu, an informal settlement situated between Achimota and Abelemkpe in Accra, Ghana’s capital.

Charity leads the way in the alleys of Abofu carrying a black plastic container, with her one–year-old child strapped to her back whilst her two other children follow her carrying two yellow jerrycans known as ‘Kuffour gallons’. These yellow one-gallon containers, which have become a symbol of the water shortage in Ghana, were named after the country’s former president, John Agyekum Kuffour (2000–8), under whose rule Ghana experienced a severe water crisis.

The journey from Charity’s home to the source of drinking water, a large drainage channel connecting to the Odaw River in Accra, takes between 10 and 15 minutes. As Charity arrives, other families are already at the Odaw drainage channel, stretching over the edge with their containers to collect water from an overflowing algae-infested pipeline. Charity claims she uses the water for cooking, drinking and washing, despite the water not being treated considering the lack of suitable and safe alternative water sources.

Accra’s water problems

Accra, Ghana is a fast-growing urban area that is facing considerable planning challenges including access to clean water owing to its rising population. With a current total of 4 million, the city’s population is expected to double by 2030, further compounding the water situation as illustrated by Charity.

Water supply to urban populations in Accra is assigned to the Ghana Water Company Limited (GWCL). Water is provided for inhabitants of these regions using a piped rationing system managed by the GWCL. Additionally, there are private tanker services to provide water to areas that are not served by the GWCL. Despite these measures, both high and low income earners in Accra still face a great challenge in accessing water. High-income earners in areas with piped water connections even purchase large water-storage vessels, such as the ‘poly-tank’, to store enough water to last them a week or more. Those in the low-income bracket rely on small, unhygienic storage systems and informal vendors such as the water-tanker services, community standpipes and boreholes for their daily use.

Poor integrity contributes to water woes

In an article published by Bloomberg, Moses Dzawu (2013) argued that many of the GWCL’s problems can be attributed to weak and outdated pipes, which fail to support the mass production and distribution of water to certain parts of the capital, as well as poor management, a lack of transparency and accountability, and corruption.

Similarly, Peter Van Rooijen (2008) maintains that corruption, together with a lack of transparency and accountability, is a key challenge hindering the GWCL’s effective operation. Corruption in the water sector in Ghana takes many forms, from misappropriations of huge sums of money to illegal connections and consumption of water. Indeed, stories of corruption have always dominated the media space in Ghana.

The link between media and integrity

The media, along with other agencies, plays an important role in corruption detection and promoting transparency and accountability in the water sector. Scholars argue that Ghana’s media has contributed largely to the country’s democratic efforts by holding the state accountable, promoting citizen education and participation, and monitoring state institutions.

In fact, in 2001, the media, together with the Integrated Social Development Centre (ISSODEC), successfully opposed a World Bank-backed project to fully privatise the GWCL. This effort was largely carried out through increased media reportage, in order to educate the public on the dangers of such privatisation (Amenga-Etego and Grusky 2005: 275).

The media is widely regarded as a defence against abuses of power; excessive politicization of national matters in the Ghanaian media is therefore very worrying. The lack of coverage and at times biased coverage on corruption or lack of integrity show that there is still a way to go before the media plays its potential role of encouraging and catalysing change within the water sector.

Challenges for the media on water integrity

The Water Integrity Network (WIN) supports and connects partners, individuals, organisations and governments promoting water integrity in order to reduce corruption and improve water-sector performance worldwide. In its Water Integrity Global Outlook 2016, it maintains that in order to fight corruption in the water sector there is a need for people to first recognise that corrupt practices exist. Local and national media both have an important role to play in bringing issues of corruption to the attention of civil society, the public and policymakers, to ensure that action is taken through policy or advocacy.

Several things come into play here: first, ownership of the media can play a role. The question of whether the media is independent or state-owned influences the extent to which it can be critical about the level of corruption in state institutions. State media tends to be less critical of government institutions, whilst the private media will most likely be more critical.

Furthermore, the amount of resources available to journalists may influence how effectively the media is able to act as a watchdog in fighting corruption. Ghanaian reporters are often poorly paid, under-resourced and lacking in training. As a result, journalists in Ghana find themselves susceptible to bribery and self-censorship.

Aside from low salaries, the Ghanaian media also suffers from weak capacity. There is a lack of adequate training and mentoring for thousands of journalists in the country in general and in specific the water sector, even though some donor organisations and non-governmental organisations (NGOs) have attempted to train reporters. Most of these attempts have, in fact, been frustrated by a lack of commitment from the journalists themselves.

The social media debate

Social media presents opportunities as well as challenges for the future of the news media in promoting integrity in the water sector. It offers many people new ways of networking, and of sharing and receiving information outside of the mainstream media such as TV, radio and newspapers.

Social media can serve as a mechanism to ‘name and shame’ corrupt officials and share information on corruption using blogs and corruption-reporting platforms such as ‘I PAID A BRIBE’ by the GII in Ghana. This online platform helps to collect anonymous reports of bribes paid, bribes requested but not paid, and bribes that were expected but not forthcoming.

Looking ahead

The watchdog role of the media does not end at producing information about misbehaviour, but also concerns how that information is used to hold people accountable for their actions. A government must know that people want responsiveness and wish to hold those in power accountable for their actions. A country’s media is likely to have a minimal effect on corruption if it tows the political line or fails to obtain the necessary support from the government, the private sector and civil society.

If the UN’s Sustainable Development Goal (SDG) 6 on water is to be achieved, the issue of water integrity should be taken more seriously by the media because it plays a key role in various aspects of the SDGs.

It is important that new initiatives are established where the media is further encouraged to take a keen interest in reporting on water related issues. International non-profit organisations, such as WIN, as well as other civil-society organisations have a role to play in ensuring that journalist networks are supported to report on these issues. It is important that the interest of journalists in reporting on such issues is sustained, which could be done through involving them in training courses or broadening their knowledge and awareness on integrity issues in the sector. The government has a role to play in ensuring that the space for the media remains open and that their safety on reporting on sensitive issues is assured.

International non-profit organisations, such as WIN, as well as civil society organisations should intensify their efforts in supporting the media to report on water issues. Journalists who show an interest in the water sector should be given the opportunity, through training courses, to broaden their knowledge and awareness of integrity issues in that sector.

Finally, there is a need for enhanced monitoring mechanisms to be utilised by citizens, civil society and the media in order to strengthen accountability and transparency, and to ensure value for money in water-service delivery.

This post is a shortened version of the original article that can be found here

33591844_10216565409229217_4810907646955618304_n.jpgAbout the author:

Abdul-Kudus Husein graduated from the ISS last year with a MA degree in Development Studies. He is currently the Communications Officer at the Ghana Anti-Corruption Coalition (GACC). His professional portfolio includes communication and fundraising with civil society and the private sector. He has over 10 years experience in generating and implementing positive offline and online messages to engage audience and stakeholders and strong long term commitment to public policy, governance, participatory development, communications for change and local economic development.