廉政研究室研究情況匯報

ProfessorTingGongDepartmentofPublicPolicyCityUniversityofHongKong

CorruptionandGovernmentIntegrityinMainlandChinaandHongKong

WhatisCorruption?“Everyoneknowswhatcorruptionis;butitisdifficulttodefineitinexactterms.〞 ---M.Halayya

ContemporarydefinitionsLaw-centereddefinitions(Nye,1067;Ekpo,1979)Objectivebutwhatiflegalsystemsarenotwellestablished?Public-interest-centered(Friedrich,1966)Whatis“publicinterest〞?Public-opinion-centered(Heidenheimer,1970)“Blackcorruption〞,“greycorruption〞,“whitecorruption〞Ispublicopinionhomogeneous?Personal-gain-centered((Brooks,1974;MacRae,1982)Doescorruptionalwaysinvolvepersonalgains?DefiningCorruptioninChinaAnarrowdefinition→ordinarycitizens“abuseofpublicpowerforprivateinterests〞Keyelements:1)abusingpublicoffice;2)relyingonlegalstandardsAbroaddefinition→publicofficialsbehaviorthatviolatesnotonlylegalbutalsomoralconventionsDifficultiesinDefiningCorruptiondifficulttodrawdistinctionbetween"public"and"private“–“greyareas〞intangible,long-term,widelydispersedgainsloopholesinalegalsystemculturalimpact

EightQuestionsaboutCorruption

(byJakobSvensson)

Whatiscorruption?Whatarethecommoncharacteristicsofcountrieswithhighcorruption?Whatisthemagnitudeofcorruption?Howtomeasureit?Doescorruptionadverselyaffectgrowth?Dohigherwagesforbureaucratsreducecorruption?Canmarketcompetitionreducecorruption?Whyhavetherebeensofew(recent)successfulattemptstofightcorruption?Iscorruptioneradicable?FormsandCharacteristicsofCorruptioninChinaCorruptionbyconsumption“Cashcorruption〞--embezzlingandextravagantlyconsumingpublicfundsOftenseeninposition-relatedconsumptionExamplesLavisheatinganddrinkingMisuseandabuseofgovernmentvehiclesSightseeingtoursdisguiseddisguisedasdutytripsCapitalCorruptionMeaning:“unsanctionedtransfersofstateassetsintoprivatehandsofgovernmentofficialsDiffersfrom“corruptionbyconsumption〞inthatitaimsatseizingproductioncapitalwhichwillbringinmoremoneyisamorerapaciousformofencroachmentonstatepropertywithmoresophisticatedtacticsExample:IllicittransfersofstateassetsinownershipdiversificationIncorporaterestructuring:loweringthevalueofthestateassetsinanassetassessmentprocesssettinghigherdividendratesforindividualsharesthanstatesharessplitindividualsharesonly,notthoseownedbythestateestablishing“shadowcompanies〞

CollectiveCorruption

“Collectivecorruption“:governmentofficialscolludewitheachotherorwithpeopleoutsidethegovernmentincorruptionCollectivecorruptiontakesplaceundercertainconditions:whenconcernedvalueoranticipatedbenefitishigh;whenthetechnicaldifficultyofcorruptionrequiresgreaterco-operation;andwhenthestakeissohighthatdividedresponsibilitiesamongcollaboratorshelpreducerisksCross-borderCorruptionTransnationalcorruption:cross-bordercollaborationofcorruptgovernmentofficialswithoverseasindividualsororganizationsOpportunitiesexpandedasChinabecomesmoreintegratedintotheglobaleconomyExamples:smugglingTransnationalmoneylaunderingOverseasFlightofCorruptOfficials

ControllingCorruption:Institutionalframework&policytoolsKlitgaard’sformula:corruption=monopoly+discretion–accountabilityControllingCorruption:threeprongedapproachReducingopportunities:asauthoritydevolvesfromupperlevels,localofficialsbecometheultimateauthoritiesindeterminingwhogetswhat,howandwhen;Reducingincentives:thedeepinvolvementinlocalbusinessaffairsplaceeconomicinterestsatarm’slengthoflocalofficialsEnhancingsupervision:multipleentrustmentchainsofpowermakeitdifficulttomonitorbureaucraticbehaviorAnticorruptionAgenciesTheCentralDisciplineInspectionCommissionoftheCCPanditslocalbranchesTheSupervisionMinistryAnti-corruptionBureauofthePeople'sProcuratorate

TheNationalBureauofCorruptionPreventionNumberofOfficialRegulationsEnacted

EachYear,1979-202117Roughly173regulatoryprovisionshavebeenadoptedinthepastthreedecades;morethanhalfweremadeinthelastdecadealone.181980-1989281990-1999552000-201090Integrityregulationsinclude-

Provisionsagainstbribery,illegalgratuities,andimpropergainsProvisionsonthedisclosureofinformationaboutconflictsofinterestProvisionssettingforthspecificproceduresfordealingwithconflictofinterestsituationsProvisionsspecifyingaccountabilitymechanismsandpenaltiestoensurecompliance19TwochallengesHowtoimplementtherulesmoreeffectively?Howtoengagethepublicandenhancedownwardaccountability?20 HongKong’sSuccessfulExperienceHongKongisregardedasoneofthecleanestsocietiesintheworld,ranked14thbyTI’sCPIamong182countriesin2021HongKong’sICACistakenasamodelofapowerfulandindependentanticorruptionagency22HongKong’ssuccessRampantcorruptionasawayoflife,notjustafactoflifePolicecorruption“Rentseeking〞throughpublicservices(firecontrol,inspection,publichospitals,immigrationoffice,etc.)Othersocialproblems:mafia,gambling,etc.23TheOldDays(1960s-1970s)24PeterFitzroyGodber

wasaformerChiefSuperintendentoftheHongKongPolice.HeengagedinabriberyscandalshortlyandthenfledtotheUK.HewasextraditedbacktoHongKongandsubsequentlyconvictedforcorruption.Establishedin1974Independent–answerabletoChiefExecutive3–ProngedStrategyEnforcement–OperationsDepartmentPrevention–CorruptionPreventionDepartmentEducation–CommunityRelationsDepartment25

IndependentCommission

AgainstCorruptioninHongKong

26ZerotoleranceforcorruptionAreyouwillingtoreport?2008200920102011yes81.3%75.3%75.9%77.2%no6.2%8.1%5.3%4.7%depends12.4%13.5%15.9%15.5%Don’tknow0.1%3.1%2.9%2.6%27WillingnesstoreportsuspectedcorruptionThepoweroftheICACRightofarrestRightofinvestigationRightofsearchRightofgettinginformationonpropertyRightofinvestigatingunexplainedproperty28MarketeconomyJudicialindependenceFreedomofspeechCivilservice(effectiveandefficient)Ruleoflaw29InstitutionalBuildingagainstCorruptionCPI-TI

959697989900010203040506070809101112Singapore

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