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How to Develop Assessment Tools for How to Develop Assessment Tools for How to Develop Assessment Tools for Standards of Professional Conduct: Standards of Professional Conduct: Standards of Professional Conduct: A Review of 78 Countries A

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The World The World Bank ank

Presented by: Presented by:

Monica Monica Dorhoi Dorhoi PREM Public Sector Governance PREM Public Sector Governance The World Bank The World Bank April 14, 2007 April 14, 2007

Presented at: Presented at:

2007 PREM Learning Week 2007 PREM Learning Week Civil Service Course Civil Service Course April 20, 2007 April 20, 2007 Washington DC Washington DC

How to Develop Assessment Tools for Standards of Professional Conduct: A Review of 78 Countries How to Develop Assessment Tools for How to Develop Assessment Tools for Standards of Professional Conduct: Standards of Professional Conduct: A Review of 78 Countries A Review of 78 Countries

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Questions yet to be answered Questions yet to be answered… …

  • What are the standards of conduct? Why are

they important?

  • Can we hold civil service accountable to these

standards? What are the major problems in doing so?

  • Are asset disclosure and freedom of

information good tools for “measuring” accountability?

  • Should we (the bank and international donors)

support/promote them? When and when not?

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Standards of Conduct Standards of Conduct

  • What standards of conduct?
  • “(…) a set of various ethical principles and values the observance of

which in the performance of public service is required and expected by the government and the public” (Slovak Government (2002:) Ethics in public administration)

  • Why?
  • One or combinations of

– Laws (Slovakia) – Resolutions (UK) – Internal Regulations (Norway)

  • To do what? How to set these standards?
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Codes of Conduct objectives examples Codes of Conduct objectives examples… …

UK New Civil Service Code of Conduct (adopted June 6, 2006)

  • Integrity
  • Honesty
  • Objectivity
  • Accountability
  • Impartiality

(Political Impartiality)

Slovakia Service Code of Conduct for Civil Servants (adopted July 31, 2002)

  • Impartiality
  • Diligence
  • Honesty
  • Courtesy
  • Accountability
  • Observance of

Laws

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Content of Codes in CEE countries (Palidauskaite, 2003)

Poland Estonia Czech Bulgaria Macedonia Latvia

  • Objective
  • * (indirectly)

Yes Yes Yes Yes Yes

  • Principles of ethics

Yes Yes Yes Yes Yes Yes

  • Conflicts of interest

Yes Yes Yes Yes Yes Yes (Asset disclosure)

  • Gifts and favors

Yes No Yes Yes Yes No

  • Outside activities

Yes No No No No No

  • Use of information

Yes Yes Yes Yes Yes Yes

  • Political activity

Yes No Yes No Yes No

  • Conduct in private life

No No Yes Yes Yes No

  • Use of state property

Yes Yes Yes No Yes No

  • Working time

No No No No Yes Yes

  • Physical presentation

No No No No Yes No

  • Relations with media

No No No No Yes No

  • Post employment

Yes No No Yes No No

  • Sanctions

No No No Yes No Yes

  • Enforcement mechanism No

No No No No Yes

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Problems Codes of Conduct are running into Problems Codes of Conduct are running into… …

  • Unrealistic expectations
  • Too much control
  • Institutional support
  • Viable legal system
  • Professionalism of civil service
  • Shift in political will
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Public Accountability project Public Accountability project… …

  • Why asset disclosure and FOI laws are

important for managing civil service?

  • Asset disclosure

– Pros – Cons

  • Freedom of information

– Pros – Cons

  • How such laws can address the reasons why

we think they are necessary?

– What are the key features that these laws must have?

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Public Accountability Project Public Accountability Project

  • The quality of the legal and institutional frameworks in law as
  • f July 2006 for Asset Disclosure, Conflict of interest,

Freedom of Information and Immunity

  • Data collection
  • Primary sources: laws, regulations
  • Secondary sources: reports, evaluations & interviews

with 3 in-country experts

  • 24 questions (criteria)
  • Scores varying from 100% (all legal and institutional

provisions) to 0% (no provisions)

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78 Countries (53 IDA)

Latin & Central America (4)

Bolivia, Dominican Republic, Guyana, Honduras

Europe and Central Asia (25)

Albania, Armenia, Azerbaijan, Bosnia and Herzegovina, Bulgaria, Croatia, Czech Republic, Estonia, …., Slovenia, Slovak Republic, Tajikistan, Turkey, Ukraine, Uzbekistan

Africa (28)

Angola, Benin, Botswana, Burkina Faso, Burundi, Congo, DRC, Ethiopia, Gambia, Ghana, Guinea, Kenya, Madagascar, Malawi, Mali, …, Nigeria, Senegal, Sierra Leone, South Africa, Tanzania, Uganda, Zambia, Zimbabwe

Middle East and North Africa (2)

Algeria, Morocco

East Asia (14)

Cambodia, Fiji, I ndonesia, Lao PDR, Mongolia, Palau, Papua New Guinea, Philippines, Solomon I slands, Taiwan, Timor Leste, Tonga, Vanuatu, Vietnam

South Asia (5)

Bangladesh, I ndia, Nepal, Pakistan, Sri Lanka

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Asset Disclosure findings Asset Disclosure findings

  • 61 out of 78 countries (83%)

– Africa – 21 out of 25 countries – Europe and Central Asia – 24 out of 25 – Latin American and Caribbean – 4 out of 4 – Middle East and Northern Africa – 2out of 2 countries – South East Asia – 3 out of 5 countries

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Asset Disclosure Requirements per Region as of July 2006

75% 64% 96% 100% 100% 60% 0% 20% 40% 60% 80% 100% A f r i c a E a s t A s i a E u r

  • p

e a n d C e . . . L a t i n A m e r i c a a . . M i d d l e E a s t a . . S

  • u

t h A s i a

Percentage of countries

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Asset disclosure (ADEX) example Asset disclosure (ADEX) example… …

Yes Yes No (content

  • nly)

Declaration verification No No Yes Public Access Yes No Yes Monitoring & Oversight No No No Sanctions Yes No Yes Frequency No No No Comprehensiveness Yes Yes Yes Declaration Requirement No No Yes Coverage Yes Yes Yes Existence Kenya Turkey Georgia

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Good Quality of Asset disclosure (ADEX) Good Quality of Asset disclosure (ADEX)

86%

Slovenia (ECA)

83%

Nigeria

90% Palau (EAP) 90% Hungary 90% Estonia 91% Croatia 94% Uganda 94% Latvia 96% Lithuania (ECA) 97% Albania (ECA) (ADEX) Percentage of key criteria as

  • f July 2006

Country

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Quality of Asset Disclosure legislation (ADEX) as of July 2006

46% 45% 70% 77% 63% 62% 0% 20% 40% 60% 80% 100% A f r i c a E a s t A s i a E u r

  • p

e a n d C e n t r a l A s i a L a t i n A m e r i c a M i d d l e E a s t & N

  • r

t h A f r i c a S

  • u

t h A s i a Percentage of criteria

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Asset Disclosure Major Problems Asset Disclosure Major Problems … …

  • Coverage
  • Enforcement mechanism
  • Penalties
  • Audit
  • Public Access
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Standard Deviation of Asset Disclosure legislation (ADEX) as of July 2006

0.29 0.38 0.21 0.04 0.20 0.07 0.00 0.10 0.20 0.30 0.40 0.50 0.60 0.70 0.80 0.90 1.00 Africa East Asia Europe and Central Asia Latin America Middle East & North Africa South Asia Standard deviation

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Does Asset Disclosure Legislation Have the Does Asset Disclosure Legislation Have the Potential to Work? Potential to Work?

  • Only 30% of the laws have all of the key/critical elements
  • Only 40 % of declarations are designed to include the

minimal sources of income a public official might have

  • Only 26 % of countries require audit of the content
  • Only 30 % of countries require declarations to be made

public

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Freedom of Information (FOIEX) Freedom of Information (FOIEX)

  • Why are FOI important?
  • 29 out of 78 countries (47%)

– Africa - 5 out of 28 countries – Europe and Central Asia - 24 out of 25 countries – Latin America & Caribbean - 2 out of 4 countries – Middle East and North Africa - 1 country out of 2 – South East Asia – 2 out of 5 countries – East Asia - 4 out of 14 countries)

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Percentage of countries which have adopted FOI as of July 2006

18% 29% 96% 50% 50% 40% 0% 20% 40% 60% 80% 100% A f r i c a E a s t A s i a E u r

  • p

e a n d C e n t r a l A s i a L a t i n A m e r i c a a n d C a r . . . M i d d l e E a s t a n d N

  • t

h . . . S

  • u

t h A s i a Percentage of countries

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Freedom of Information Example Freedom of Information Example… …

No No Yes Public Access No No No Sanctions No No No Monitoring & Oversight No No Yes Tests to Override Non-disclosure No No Yes Exemptions No No Yes Request Processing & Submission No Yes Yes Coverage No Yes Yes Right to information No Yes Yes Existence Kenya Turkey Georgia

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Good Quality Freedom of Information Laws Good Quality Freedom of Information Laws… …

73%

Armenia (ECA)

73%

Bosnia and Herzegovina (ECA)

74% South Africa (AFR) 75% Slovenia (ECA) 77% Dominican Republic (LAC) 78% Estonia (ECA) 82% Lithuania (ECA) 84% Macedonia (ECA) 86% Moldova (ECA) 90% Zambia (AFR) Percentage of key criteria as

  • f July 2006

Country

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Quality of Freedom of Information (FOIEX) Scores per Region as of July 2006

17% 13% 59% 32% 23% 23% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% A f r i c a E a s t A s i a E u r

  • p

e a n d C e n t r a l A s i a L a t i n A m e r i c a a n d C a r r i b e a M i d d l e E a s t a n d N

  • r

t h A f r i c a S

  • u

t h A s i a

Percentage of criteria

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FOI Major Problems FOI Major Problems… …

  • Exemptions and “tests” to override them
  • Appeal and enforcement bodies/authorities
  • Public access to information (time spans and

costs)

  • Penalties for officials not applying the

legislation

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Standard Deviation of 2006 FOIEX

0.26 0.17 0.17 0.31 0.32 0.27 0.00 0.10 0.20 0.30 0.40 0.50 0.60 0.70 0.80 0.90 1.00 Africa East Asia Europe and Central Asia Latin America and Carribea Middle East and North Africa South Asia Sta nda rd de v ia tion

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Do FOI Have the Potential to Work? Do FOI Have the Potential to Work?

  • Only 12 % of FOI have all of the key

criteria

– Only 18 % have enforcement mechanisms – Only 13 % have penalties for public officials not applying the legislation – Only 12 % have clearly defined exemptions as well as tests to override non-disclosure

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When Should a Country Adopt Such Laws? When Should a Country Adopt Such Laws? When not? When not?

  • Level of democratization
  • Costs
  • Enforcement Mechanisms
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Dorhoi (2005) Anti-Corruption Strategies and Fighting Corruption in Central and Eastern Europe, Michigan State University, PhD Dissertation

Trends in Quality of Asset Disclosure (ADEX) in Central and Eastern Europe 2.203 5.756 8.059 8.347 2 4 6 8 10 12 1995 2002 2003 2006

What Happens Over Time? What Happens Over Time? Should We Support such Reforms? Should We Support such Reforms?

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Trends in Quality of Freedom of Information (FOIEX) in Central and Eastern Europe 2.451 6.885 8.076 8.341 2 4 6 8 10 12 1995 2002 2003 2006

Dorhoi (2005) Anti-Corruption Strategies and Fighting Corruption in Central and Eastern Europe, Michigan State University, PhD Dissertation

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Dorhoi (2005) Anti-Corruption Strategies and Fighting Corruption in Central and Eastern Europe, Michigan State University, PhD Dissertation.

Trends in Quality of Immunity (IMEX) across Central and Estern Europe

4.923 5.479 5.877 7.067 2 4 6 8 10 12 1995 2002 2003 2006 Average Immunity scores I m m u n i t y I n d e x

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Next steps Next steps… …

  • The 2006 Public Accountability Index is currently being reviewed within

the Bank … and will officially be launched end of April 2007

  • Mid-2007 second round of data collection
  • Further refinement of the questionnaire add criteria on

institutional arrangements

  • Expand the number of countries

(to 150 by December 2007)

  • Include the conflict of interest area (information already

collected) and add new area: civil service

  • Expansion from in law to in practice
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Discussion Discussion

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Comparison to Other Instruments Comparison to Other Instruments

Integrity index Public Accountability Index

1 question 6 questions

Immunity

2 questions 9 questions

FOI

None 9 questions

Conflict of interest

2 questions 9 questions

Asset disclosure

Areas

25 countries in 2004; 43 in 2007 78 countries;

  • approx. 150

countries by March 2008

Sample size

6 Questions 8 Questions 9 Questions 9 Questions 15 countries in 1995, 2002 & 2003

Anti-Corruption Assessment Index (ACAI)

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Actionable indicators Actionable indicators

Public access to declarations:

i. Are the declarations made publicly available? ii. When the declarations are made publicly available? iii. Where the declarations are made publicly available? iv. For how long is the record maintained?

In practice In law

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Actionable indicators Actionable indicators

Public access to declarations:

i. Are the declarations made publicly available? ii. When the declarations are made publicly available? iii. Where the declarations are made publicly available? iv. For how long is the record maintained?

In practice In law

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Quality of Asset Disclosure provisions (ADEX) Quality of Asset Disclosure provisions (ADEX)

Ranking Country ADEX 1. Albania 97% 2. Lithuania 96% 3. Uganda 94% 4. Latvia 94% 5. Croatia 91% 6. Palau 90% 7. Estonia 90% 8. Hungary 90% 9. Slovenia 86% 10. Nigeria 83% 11. Papua New Guinea 82% 12. Serbia 81% 13. Honduras 81% 14. Taiwan 79% 15. Bolivia 79% 16. Vanuatu 78% 17. Kyrgyz Republic 78% 18. Romania 78% 19. Mozambique 77% 20. Solomon Islands 77% 21. Guyana 77% 22. Algeria 77% 23. Philippines 74% 24. Georgia 74% Ranking Countries ADEX 25. Sri Lanka 74% 26. Mauritius 73% 27. Dominican 72% 28. Mali 70% 29. Moldova 70% 30. Azerbaijan 69% 31. Niger 67% 32. Slovakia 67% 33. Ukraine 67% 34. Kenya 66% 35. Armenia 65% 36. Czech Republic 65% 37. Macedonia 65% 38. Poland 64% 39. Burundi 63% 40. Madagascar 63% 41. Zambia 62% 42. Bangladesh 62% 43. Indonesia 61% 44. Ghana 60% 45. Bulgaria 60% 46. Nepal 60% 47. Pakistan 60% 48. Namibia 59% 49. Tanzania 58%

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Ranking Country ADEX 50. South Africa 57% 51. Bosnia 57% 52. Gambia 56% 53. Vietnam 56% 54. India 56% 55. Burkina Faso 54% 56. Tajikistan 54% 57. DRC 53% 58. Benin 52% 59. Senegal 51% 60. Morocco 49% 61. Malawi 48% 62. Turkey 44% 63. Kazakhstan 43% 64. Congo 28% 65. Mongolia 27% 66. Zimbabwe 4% 67. Angola 0% 68. Botswana 0% 69. Ethiopia 0% 70. Guinea 0% 71. Mauritania 0%

72.

Sierra Leone 0%

73.

Cambodia 0%

74.

Fiji 0%

75.

Lao 0%

76.

Timor Leste 0%

77.

Tonga 0%

78. Uzbekistan 0%

Quality of Asset Disclosure (ADEX) Quality of Asset Disclosure (ADEX)

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Quality of Freedom of Information (FOIEX) Quality of Freedom of Information (FOIEX)

Number Country FOIEX 1. Zambia 90% 2. Moldova 86% 3. Macedonia 84% 4. Lithuania 82% 5. Estonia 78% 6. Dominican Republic 77% 7. Slovenia 75% 8. South Africa 74% 9. Armenia 73% 10. Bosnia 73% 11. Hungary 67% 12. Zimbabwe 66% 13. Croatia 66% 14. Georgia 65% 15. Latvia 65% 16. Romania 65% 17. Taiwan 62% 18. Azerbaijan 62% 19. Poland 62% 20. Uganda 61% 21. Bulgaria 61% 22. Czech Republic 58% 23. India 55% 24. Serbia 54%

Ranking Country FOIEX 25. Pakistan 51% 26. Ukraine 49% 27. Slovakia 46% 28. Tajikistan 46% 29. Morocco 46% 30. Kyrgyz Republic 44% 31. Turkey 44% 32. Uzbekistan 41% 33. Albania 40% 34. Philippines 31% 35. Bolivia 28% 36. Mozambique 22% 37. Indonesia 22% 38. Vietnam 22% 39. Botswana 11% 40. DRC 11% 41. Madagascar 11% 42. Mali 11% 43. Mauritania 11% 44. Mauritius 11% 45. Palau 11% 46. Papua New Guinea 11% 47. Solomon Islands 11% 48. Timor Leste 11% 49. Kazahstan 11%

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Quality of Freedom of Information (FOIEX) Quality of Freedom of Information (FOIEX)

Ranking Country FOIEX 50. Hungary 0.67 51. Croatia 0.66 52. Georgia 0.65 53. Latvia 0.65 54. Romania 0.65 55. Azerbaijan 0.62 56. Poland 0.62 57. Bulgaria 0.61 58. Czech Republic 0.58 59. Serbia 0.54 60. Ukraine 0.49 61. Slovakia 0.46 62. Tajikistan 0.46 63. Kyrgyz Republic 0.44 64. Turkey 0.44 65. Uzbekistan 0.41 66. Albania 0.40 67. Kazahstan 0.11 68. Dominican Republic 0.77 69. Bolivia 0.28 70. Guyana 0.11 71. Honduras 0.11 72. Morocco 0.46 73. Algeria 0.00 74. India 0.55 75. Pakistan 0.51 76. Nepal 0.11 77. Bangladesh 0.00 78. Sri Lanka 0.00

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Quality of Immunity (IMEX) Quality of Immunity (IMEX)

Ranking Country IMEX 1. Bosnia 100% 2. South Africa 96% 3. Estonia 95% 4. Bangladesh 92% 5. Mauritius 88% 6. Lithuania 86% 7. Albania 86% 8. Slovakia 86% 9. India 83% 10. Palau 82% 11. Turkey 79% 12. Guinea 78% 13. Tanzania 78% 14. Latvia 78% 15. Slovenia 78% 16. Ghana 76% 17. Mali 76% 18. Benin 76% 19. Burkina Faso 76% 20. Morocco 76% 21. Mozambique 75% 22. Nepal 74% 23. Czech Republic 73% 24. Angola 72%

Ranking Country IMEX 25. Niger 72% 26. Lao 72% 27. Indonesia 72% 28. Cambodia 72% 29. Guyana 72% 30. Botswana 71% 31. Bulgaria 69% 32. Hungary 69% 33. Bolivia 69% 34. Romania 68% 35. Poland 68% 36. Ukraine 68% 37. Georgia 67% 38. Kenya 65% 39. Philippines 65% 40. Sri Lanka 65% 41. DRC 64% 42. Nigeria 64% 43. Croatia 64% 44. Moldova 64% 45. Macedonia 64% 46. Serbia 63%

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47. Ethiopia 61% 48. Uganda 61% 49. Fiji 61% 50. Tonga 61% 51. Madagascar 60% 52. Burundi 60% 53. Taiwan 58% 54. Solomon Islands 58% 55. Honduras 58% 56. Papua New Guinea 57% 57. Sierra Leone 56% 58. Senegal 56% 59. Namibia 56% 60. Uzbekistan 56% 61. Mongolia 54% 62. Pakistan 53% 63. Malawi 52% 64. Gambia 51% 65. Congo 51% 66. Algeria 51% 67. Zimbabwe 50% 68. Mauritania 49% 69. Armenia 49% 70. Dominican 49% 71. Zambia 48% 72. Timor Leste 48% 73. Kazakhstan 47% 74. Azerbaijan 47% 75. Vanuatu 43% 76. Vietnam 42% 77. Tajikistan 33% 78. Kyrgyz Republic 31%

Quality of Immunity (IMEX) Quality of Immunity (IMEX)