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Module 8 Integrity indicators and indices
Transparency/accountability/integrity indicators:
•focus on the effectiveness of anti-corruption mechanisms which are within the control of policy makers
• tend to be actionable
• Example: performance indicators for political party finance disclosure (e.g. CRINIS)
Module 8 Developing integrity indicators and indices
Mini-lecture Integrity indicators, Macedonian case
The challenge: to combat corruption at the municipal level.
But other challenges had to be overcome first:
• Polarized political climate, with little trust of perception based indicators of corruption
• generating buy-in from all stakeholders
• Inadequacy of existing tools
Module 8 Developing integrity indicators and indices
Solution?Developed a Responsibility, Transparency and Accountability (RTA) Index for the local level to assess progress in public procurement, local planning and financial management and property. The method and index is accepted by local authorities, political actors, media and the general public.
Criteria for indicators:
• Clear • Indisputable• Simple• Impartial
Mini-lecture Integrity indicators, Macedonian case
So how did they go about designing integrity, transparency and accountability indicators?
Step 1 = corruption risk mapping
Mini-lecture Integrity indicators, Macedonian case
Requests for new connections
Authorization of new connections
Hiring touts/ middlemen to fill in formsBribes to get filled forms depositedPayment to expedite new connectionsBribes to secure a new connectionBribes to speed up an applicationBribes to ensure forms are accepted
Service delivery
Offered extra payment to resolve problemAsked for payment to resolve problemBribes to stop reporting illegal connectionsPayments to expedite repair workPayments to make illegal connectionsUnofficial private repairsChoice of contractors – personal or political gain
Meter arrangement
Install meters/replacement of meters
Meter reading
Enter meter reading into billing system
Billing
Payment
Outputs billing/estimate billing for unmetered accounts
Computerized billing
Account summaries prepared and billing prepared for distribution
….
Extort payment to reduce meter readingBribes to reduce meter readingPayment to overlook an illegal connectionFalse meter readings
Payment to reduce bill
WEDC, Loughborough University
The method
2. Identify corruption “hot spots”
3. Identify corresponding anti-corruption mechanisms
4. Design indicators to match
5. Quantify indicators to make an index
1. Trace the steps in the delivery of a service
Mini-lecture Integrity indicators, Macedonian case
Example
Hot spot:Creating an impression of complexity of the procedure for obtaining a construction permit, to allow possibility of extorting a bribe.
AC mechanism:All interested parties must be clearly and precisely informed of the course and duration of the procedure for obtaining a permit and the documents required.
Indicator:Existence of a system for informing parties through written notices posted up or obtainable at the window from a clerk.
Stakeholder involvement = integral part of the method
3 categories of stakeholders:• Local self-government representatives•The institutions in charge of their work•Users of municipality services
• Interviews used to define hot spots•AC mechanisms defined with the institutions responsible for monitoring the work of local self-govs• Team of local stakeholders implements the tool
People’s perceptions were used to inform the design, but in this case, the instrument measures
only factual data.
Mini-lecture Integrity indicators, Macedonian case
Activity 2 Developing integrity indicators
Module 8 Developing integrity indicators and indices
Over to you…
A selection of corruption hot spots for a given sector is provided on the worksheet. Can you create matching anti-corruption mechanisms and indicators?
• Small groups
• 15 mins
Activity 2 Developing integrity indicators
Module 8 Developing integrity indicators and indices
• How useful is this technique?
• Can you think of other ways of mapping corruption risks?
Activity 3 Why produce an index??
Module 8 Developing integrity indicators and indices
• Does your country have any sub/national indices relating to corruption?
• If not, would it be useful to produce one? What, in your opinion, would be most useful to rank?
• What are the advantages of producing an index? When might an index not be appropriate?
• Answer in small groups
•20 minutes
Activity 3 Why produce an index??
Module 8 Developing integrity indicators and indices
• Raking for comparison: over time, space, across institutions
• Promoting a cycle of virtuous competition
• If based on actionable indicators, scores can be disaggregated to pinpoint weaknesses and bottlenecks
• Can highlight the worst offenders (e.g. Kenya Bribery Index 2008, police) and trigger public demand for accountability
• Caveat: methodology must be transparent, and legitimate in the eyes of those being assessed
Activity 4 How to quantify?
Module 8 Developing integrity indicators and indices
Some indicators are easy to quantify:Ex: What percentage of the population has experienced a bribe demand in the past 6 months?
Others require a scale: a set of numerical values assigned to certain criteria for the purpose of quantifying qualitative indicators. Typical of indicators that assessment performance.
Activity 4 How to quantify?
Module 8 Developing integrity indicators and indices
Example :How responsive was X Ministry in disclosing requested information?
Highly responsive (within 1 week)……………………..3 pointsSomewhat responsive (within 2 months)……………...2 pointsSomewhat unresponsive (more than 6 months)……....1 pointVery unresponsive (1 year or no response)……………0 point
So scaling introduces quality benchmarks.
Activity 4 How to quantify?
Module 8 Developing integrity indicators and indices
Example indicator 2:Existence of a system for informing parties through written notices posted up or obtainable at the window from a clerk.
Information for the parties is visibly posted or easily obtainable………........................................2 pointsInformation upon request of the party………...…...……………………………….1 pointNo system of informing the parties………...………….....…………………….0 point
Activity 4 How to quantify?
Module 8 Developing integrity indicators and indices
Slightly trickier…
How do you assess simple yes/no questions?
Example:In practice, are national level judges protected from political interference?
These can also be scaled!
Example: In practice, national level judges protected from political interference. Scale: 100 points, 50 points, 0 points
Activity 4 How to quantify?
Module 8 Developing integrity indicators and indices
100 points - National level judges operate independently of the political process, without incentive or pressure to render favourable judgments in politically sensitive cases. Judges never comment on political debates. Individual judgments are rarely praised or criticized by political figures.
50 points - National level judges are typically independent, yet are sometimes influenced in their judgments by negative or positive political incentives. This may include favourable or unfavourable treatment by the government or public criticism. Some judges may be demoted or relocated in retaliation for unfavourable decisions.
Activity 4 How to quantify?
Module 8 Developing integrity indicators and indices
0 points - National level judges are commonly influenced by politics and personal biases or incentives. This may include conflicting family relationships, professional partnerships, or other personal loyalties. Negative incentives may include demotion, pay cuts, relocation, threats or harassment.(Source: Global Integrity Scorecard)
Scores can be supplemented with narrative explanations for added clarity.
Creating scales with quality/performance standards is an example of the types of important decisions that have to be made when designing indicators, and which are the basis for benchmarking.
Example:• What are the standards for judicial independence? (e.g. what are the standards for strong, moderate and weak performance?)
• What constitutes a desirable level of participation in public decisions? (e.g. in budgeting or urban planning)
Module 8 Developing integrity indicators and indices
Activity 4 How to quantify?
Activity 5 Developing indicator scales
Module 8 Developing integrity indicators and indices
Over to you…
Using the worksheet provided, work with a partner or two to develop your own indicator scales.
• 20 minutes
Photo by: takeabreak/flickr
Activity 5
Module 8 Developing integrity indicators and indices
Developing scales for indicators is a subjective aspect of the quantification process.
Can you think of any other aspect of developing an index that might be subjective?
Activity 5 Why weight?
Module 8 Developing integrity indicators and indices
Constructing an index requires that individual indicator scores be aggregated into one “total score.”
Is each indicator equally important in determining the concept/phenomenon being measured?
• indicators may reflect values an principles that are important to those carrying out the assessment
• indicators can be weighted to reflect their level of significance
• weighting is highly subjective and value-based, and therefore should be consultative and transparent