At its recent
annual meeting, World Bank officials spoke extensively about
corruption. It is an understandable concern: money that the Bank
lends to developing countries that ends up in secret bank accounts
or finances some contractors’ luxurious lifestyle leaves a country
more indebted, not more prosperous.
James Wolfensohn, the Bank’s previous president, and I are
widely credited with putting corruption on the Bank’s agenda,
against opponents who regarded corruption as a political issue, not
an economic one, and thus outside the Bank’s mandate. Our research
showed systematic relationships between corruption and economic
growth, which allowed us to pursue this critical issue.
But the World Bank would do well to keep four things in
mind as it takes up the fight.
First, corruption takes many forms, so a war on corruption
has to be fought on many fronts. You cannot fight the diversion of
small amounts of money by weak and poor countries while ignoring the
massive diversion of public resources into private hands of the sort
that marked, say, Russia under Boris Yeltsin.
In some countries, overt corruption occurs primarily
through campaign contributions that oblige politicians to repay
major donors with favors. Smaller-scale corruption is bad, but
systemic corruption of political processes can have even greater
costs. Campaign contributions and lobbying that lead to rapid
privatizations of utilities “before appropriate regulatory
frameworks are in place, and in a manner that produces only a few
bidders” can impede development, even without direct kickbacks to
government officials.
Life is never black and white. Just as there is no “one
size fits all” policy for economic development, there is no such
policy for fighting corruption. The response to corruption needs to
be as complex and variegated as corruption itself.
Second, it is fine for the World Bank to deliver
anti-corruption sermons. But policies, procedures, and institutions
are what matter. In fact, the Bank’s procurement procedures are
generally viewed around the world as a model to be admired. But
success in fighting corruption entails more than just good
procurement procedures (avoiding, for instance, single-source
non-competitive bidding). Many other policies and procedures can be
enacted that reduce incentives for corruption. For example, some tax
systems are more corruption-resistant than others, because they
curtail the discretionary authority of tax officials.
Third, the World Bank’s primary responsibility is to fight
poverty, which means that when it confronts a poor country plagued
with corruption, its challenge is to figure out how to ensure that
its own money is not tainted and gets to projects and people that
need it. In some cases, this may entail delivering assistance
through non-governmental organizations. But seldom will it be the
case that the best response is simply to walk away.
Finally, while developing countries must take
responsibility for rooting out corruption, there is much that the
West can do to help. At a minimum, Western governments and
corporations should not be complicit. Every bribe that is taken has
a payer, and too often the bribe payer is a corporation from an
advanced industrial country or someone acting on its behalf.
Indeed, one reason for the so called “natural resource
curse” - the fact that resource-rich countries do not, on average,
do as well as resource-poor countries - is the prevalence of
corruption, too often aided and abetted by companies that would like
to get the resources they sell at discount prices. The US, under
President Jimmy Carter, made an important contribution in passing
the Foreign Corrupt Practices Act, which made bribery by American
companies anywhere in the world illegal. The OECD’s Convention on
Bribery was another step in the right direction.
Making all payments to governments transparent would bring
further progress, and Western governments could encourage this
simply by tying this requirement to tax deductibility.
It is equally important to address bank secrecy, which
facilitates corruption by providing corrupt dictators with a safe
haven for their funds. In August 2001, just before the terrorist
attacks on America, the US government vetoed an OECD effort to limit
secret bank accounts. While the government has since reversed its
stance on bank secrecy for terrorists, it has not done so for
corrupt officials. A strong stand by the World Bank would enhance
its credibility in the war on corruption.
The most strident criticism [against the World Bank], comes
from those who worry that the World Bank is straying from its
mandate. Of course, the Bank must do everything that it can to
ensure that its money is well spent, which means fighting both
corruption and incompetence.
But money itself will not solve all problems, and a
single-minded focus on fighting corruption will not bring
development. On the contrary, it might merely divert attention from
other issues of no less moment for those struggling to lift
themselves out of poverty.