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Secondly, it details how successful high-level reform strategies need to begin with the understanding that corruption is not a phenomenon in and of itself, but the result of fragmented regimes that lack accountability. During the war in Afghanistan, responsibility for unprecedentedly large amounts of money fell to diverse control systems, none of which had the capacity or reach to compensate for the lack of state-managed oversight. Overcoming fragmentation could only begin from the top.
The political nature of corruption and the necessarily political nature of the reform process can be illustrated by the experience of the United States in the 19th century (as I describe in Fukuyama 2014, chapters 9–11). American politics in that period was not too different from politics in contemporary developing democratic countries such as India, Brazil or Indonesia. Beginning in the 1820s, American states began extending the franchise to include all white males, vastly expanding the voter base and presenting politicians with the challenge of mobilising relatively poor and poorly educated voters. The solution, which appeared particularly after the 1828 presidential election that brought Andrew Jackson to power, was the creation of a vast clientelistic system. Elected politicians appointed their supporters to positions in the bureaucracy or rewarded them with individual payoffs like Christmas turkeys or bottles of bourbon. This system, known as the spoils or patronage system, characterised American government for the next century, from the highest federal offices down to local postmasters in every American town or city. As with other clientelistic systems, patronage led to astonishing levels of corruption, particularly in cities such as New York, Boston and Chicago where machine politicians ruled for generations.
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But if the problem to solve in a country like Afghanistan is a lack of accountability, the actions needed to change it must overcome the fact that the government institutions, which are expected to carry out the reforms, are themselves highly fragmented. Reforms from outside the system can make some progress, but fragmentation means that these reforms will always be partial and temporary. In fragmented systems, only strong, national political leadership can tackle corruption at its roots. This is because only the top political leadership can look across the different arenas and ministries where corruption happens, in order to provide an effective agenda for reform. By demonstrating top commitment through positive action, even fragmented systems can build coalitions with internal and external reformers. But somebody must open the door.
We intend to work with the Legislature to implement all these necessary reforms. It’s also critical that these two agencies charged with fighting corruption and financial crimes collaborate closely with development partners for technical assistance, staff training and data sharing.
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Government appointments People widely believe that appointments to the government are secured through patronage and payment. The Ministry of Finance informed the Cabinet that national revenue could be doubled if civil servants were not paying back the costs of their appointments.
At its most basic, public procurement is how the government uses competition to get the public the best value at the lowest cost. Reforming how governments go about buying goods and services may not seem an especially exciting place to start systems reform, especially when compared with high-profile prosecutions or investigative reporting and publication. But procurement lies at the heart of what governments ‘do’. Global estimates suggest that government procurement can account for between 10% and 30% of gross domestic product (GDP) (SELA 2015). And when public procurement is infected by corruption, the effect on government performance and value to the taxpayer is catastrophic.
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First, corruption should be exposed so there is nowhere to hide. We need to end the use of secret shell companies, so that the corrupt no longer have an easy and anonymous way to hide their loot and move it across borders. We need to drive out the rogue lawyers, estate agents and accountants who facilitate or tolerate corruption in commerce and finance. We need to expose the theft or misuse of taxpayers’ money by opening up budgets and procurement so that people can see exactly how their money is used and they can demand that people are held to account when it is stolen. And we need a sustained effort in those areas which Paul Collier describes as the “pockets of high corruption”, including corruption-prone sectors such as the extractive and construction industries.
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