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Corruption as Cultural Phenomenon: Findings from Interviews with Croatian Experts

Corruption as Cultural Phenomenon: Findings from Interviews with Croatian Experts. Kufrin, K . , Štulhofer, A . , Čaldarović, O . , Gregurović, M ., Odak, I . , Detelić, M . & Glavašević, B . IUC, Dubrovnik, January 2008. Introduction.

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Corruption as Cultural Phenomenon: Findings from Interviews with Croatian Experts

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  1. Corruption as Cultural Phenomenon: Findings from Interviews with Croatian Experts Kufrin, K., Štulhofer, A., Čaldarović, O., Gregurović, M., Odak, I., Detelić, M. & Glavašević, B. IUC, Dubrovnik, January 2008

  2. Introduction • June 2007: operation "Maestro" – the biggest corruption affair ever reported in Croatia • Used for political struggles based on metaphors, not on evidence • Unclear results; irregularities continue? • September 2007: (slightly) improved ranking on the TI Corruption Perception Index • December 2007 (made public in January 2008): EU postpones negotiations on Ch. 23 (Judiciary and fundamental rights); revision of The National Anti-Corruption Programme needed • January 2008: Extremely low ranking (37/41 among European Countries) on The 2008 Index of Economic Freedom (one of the indicators: freedom from corruption) • Reshaping the public perception of corruption and anti-corruption activities: hope  ambivalence  resignation?

  3. Methodology: General Outline Trying to respect the main canons of the GT methodology: • Theoretical sampling • Interrelated data collection and analysis • Development of concepts • Development of categories through the comparison • Development and verification of the hypotheses • Development of the theory

  4. Data Generation: Participants

  5. Data Generation: Interviews • Interviewing: between the end of December 2006 and mid-April 2007 (mostly January 2007) • Performed by all the team members (training!) • Semi-structured interviews (interview protocol to be followed with possible adjustments & extensions) • Duration 22-84 minutes, 40 minutes on average • Explicitly stressed out that an interviewee is not considered to be a representative of his/her institution • Written statement of anonymity and confidentiality • Electronic recording followed by immediate transcription

  6. Data Analysis I • Initial coding:each interview treated as a separate hermeneutic unit • Open coding • First-level analysis: interviewer & another team member agreement (enhanced reliability) • Extensive discussion, code-by-code, on the first three coded documents on several team meetings  revision of the codes, setting general coding rules to be applied in the analysis of subsequent documents • Coded docs from the same target grouped merged into single hermeneutic unit

  7. Data Analysis II • Complete hermeneutical unit axial codingto generate categories and subcategories • Categories applied at the final step: – Definition of corruption – Seriousness of corruption in Croatia – Main loci (areas) of corruption – Changes in corruption dynamics/types – Roots/causes of corruption – Consequences of corruption – Public perception of corruption – Trust in institutions – The role of the media – The role of NGOs – Measures for combating the corruption – The Role of the EU

  8. Results: The Structure • Defining corruption • Seriousness of corruption • The level • Main areas affected • Public perception • Dynamics of corruption • Public perception of corruption • Causes of corruption • Major consequences of corruption • Combating corruption • National action program • The role of the media, NGO, and the EU • Internal control, anti-corruption measures and mechanisms

  9. Definitions of Corruption • “Non-transparent (‘politically connected’) business... • Abuse of power and authority • Bribes and/or exchange of favors • An evil...”

  10. Seriousness of Corruption • “One of the biggest social problems; we are a highly corrupt society; C. covers all the spheres... • It gets 7, on the scale from 1 to 10 • The perception of C. is exaggerated...”

  11. Dynamics of Corruption • “No systematic research exists... • With transition, C. became more complex and harder to control (not-centralized any more) • Maybe we are more sensitive to C. Today • The media report more today...”

  12. Public Perception • “Somewhat inflated... • Petty C. is most usually referred to (the health system) • Heavily influenced by the media (propaganda machinery; fragmentary, often ignorant and/or politically motivated, and sensationalist reporting...”

  13. Causes and Sources • “Cultural tradition of gift giving (?); a culture of corruption has always existed in this region • In socialism corruption was almost legal; it was the period of corruption • The impact of war (the state and the organized crime) and transition • “C. is present wherever the state is the owner... (the state bureaucracy is the source of political and economic corruption)... or where is intense interaction between state and citizens (public administration) • Most affected areas: health services, construction industry, politics, judiciary, local government (public procurement)...”

  14. Major Consequences • “Growth of the organized crime... It took over the state...” • Decreased availability of certain services • Sense of insecurity, “generalized pessimism”, opportunism and lack of trust: “deeply rooted awareness that nothing can be done without bribe” • Generalized inequality • “Corruption destroys the legal system...”

  15. Combating Corruption • Citizens’ participation (“increasing awareness and readiness”) • Political will (“no willingness to end corruption”) • Lack of systematic approach to combating C. • Proactive approach (“state institutions should start functioning properly”) • General skepticism toward the new National program and action plans (“good on paper”, lack of coordination between many partners, “political pamphlet”, “no political will to implement it”) • Still, the new program is a step ahead in comparison to the old one... • The role of the media: • “Also corrupt...; interest only in making money; political agenda; short attention span, , scandal-oriented journalism (lack of research journalism), non-systematic approach, and often poor understanding of what C. is; exaggeration • The role of NGO: • Often non-transparent activity; NGO role is marginalized • The role of the EU: • Positive and important: mechanisms, instructions, and political pressure • “The EU has not solved large scale corruption any better than we did”; risks related to globalization...

  16. Fighting Corruption Internally • Rarely mentioned & lack of attention to... • Positive thinking, good intentioned people & informal checks • Discouragement and disbelief that efficient mechanisms could be established (the media group) • Hyperopic (mis)perception?

  17. COMBATING C.: - strict control of financial flows - the importance of systematic investigation ROLES IN COMBATING C.: (a) MEDIA: - (b) NGOs: not mentioned (c) the Public: - (d) the EU: + DYNAMICS: (a) Change in type of C. (b) C. has increased / is stagnating MAIN LOCI OF C.: - politics, judiciary, health system, public procurement and tenders, construction industry CAUSES CORRUPTION CONSEQUENCES DEFINITIONS: - abuse of power/authority for personal benefits - bribery - organized crime - corruption is universal - local culture, mentality, way of life - low salaries - socialist legacy - transition (especially privatization) - the war - value system crisis - erosion of trust - suboptimal use of resources - insecurity - deterioration of the legal system EVALUATION: Corruption is a serious problem TARGET GROUP POLITICS

  18. The Six Ideal-Types • The Public Relations model (PR) = simplified & populist definition; C. is damaging for public image; anti-corruption measures are chosen according to their PR efficiency • The Expert model (E) = complex and comprehensive definitions; C. is viewed as damaging to the social fabric and the economy; measures are based on best international practice(s) • The Nuisance model (N) = lack of clear definition; corruption is a minor and universal difficulty; measures are short-term and lack a clear focus • The Human Rights model (HR) = comprehensive definition emphasizing human rights abuse; C. is a moral, socio-cultural and economic evil; measures are systematic, rigorous, and transparent • The Pragmatic model (P) = comprehensive legal-political definitions; C. is a serious problem but primarily at lower-levels • The Ignoring model (I) = ad hoc definitions; no clear measures

  19. Ideal-Types and Model Fitting • Core categories: (1) definition of C.; (2) seriousness and dynamics of C.; (3) combating C. and (4) internal mechanisms • Police = E & P • Politics = E, N (universality of C.) & I • NGOs = E & HR • Legal system = E, PR & I • Economy = E, PR & N • The Media = E, P & HR

  20. Conclusions • The expert and pragmatic (P) model predominant in defining corruption and views on combating C. • The ignoring (I) model was the most frequently encountered model in the discussion about internal control and in-house anti-corruption mechanisms • Wide-spread C.and equally ubiquitous vilification of C.? Toward a theory of hyperopic (mis)perception of C, • The role of NGOs is marginalized • The role of the EU: positive and important (institutional design, legal innovations and political pressure)

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