General
Interpreting Corruption: Culture and Politics in the Pacific Islands
- Larmour, Peter; University of Hawai’i Press, March 2012, ISBN: 978-0-8248-3514-9
Review by Toby Ley
“I have watched the euphoria of independence throughout the Pacific degenerate after ten years into political corruption, and how our people become involved in that. Our new leadership, our new elite – of which I am a member, I am sorry to say – is carrying out a form of colonialism which may even be worse than what we got rid of” (Samoan Novelist, Albert Wendt 1993).
Peter Larmour’s recent release through University of Hawai’i Press, Interpreting Corruption: Culture and Politics in the Pacific Islands is an accessible work providing valuable insights into corruption and the cultural and political factors surrounding it. The book’s relevance is well demonstrated in the current context of frequently reported corruption concerns in the PNG elections. Drawing on a variety of sources including media coverage, an array of experts from several academic disciplines, NGO studies and literary works, the book is brimming with both short, entertaining anecdotes and fascinating, in-depth examples of corruption throughout the region. Larmour manages to take a subject that could be treated blandly and share it in an interesting and engaging way.
The book draws heavily on data gleaned from ‘National Integrity System’ reports conducted by Transparency International (TI), an NGO of which the author is a member. Despite his involvement with TI, Larmour’s critical analysis of its work is fair. He acknowledges for example, the risks of over-simplifying issues of corruption for public consumption, which may be a temptation with TI’s Corruption Perceptions Index (CPI) product. Larmour’s self-proclaimed ‘interpretative approach’ to public policy focuses on shedding light on differing contexts and acknowledging the grey areas, as opposed to providing simplistic explanations or general lists.
Larmour underscores the importance of addressing corruption, likening it to cancer -as this piece does- but he also illustrates the difficulties associated with treatment, given that even defining corruption is a task fraught with challenges. A common legal definition of corruption in the West is, ‘the use of public office for private gain’ but here in the Pacific, there often aren’t even exact translations for the word ‘corruption’. We learn that in Tongan the nearest word seems to be ‘angakovi’ (of bad character, badly behaved, unkind) and in Cook Islands they use the word ‘keikeia’ (thief), noting that the difference between sharing resources and thievery is sometimes blurred. But the definition of corruption matters, especially in the legal sense; Larmour shares figures suggesting that the Fijian Independent Commission Against Corruption rejected 78% to 85% of complaints because they did not meet their official definition of corruption.
The exploration of the cultural links to corruption proves to be a particularly interesting aspect of the book. His examination of ‘gift giving’ practices through the region demonstrate the fine line between practices of culture and the presence of corruption. We see that while it is possible to see a culture of gift giving as a cause of corruption, others view gift giving as merely a convenient vehicle to be used for the practice of it. While TI has taken a stand against culture being used as an excuse for corruption, as an international organisation it has to, in practice, ‘defer to claims of national difference’.
Culture also ties in with perceptions of the state and politics in the Pacific in the sense that systems of the state are relatively new and culturally foreign. It is suggested that in Melanesia for example, large faceless government bureaucracies have no more appeal than large corporate logging companies. Larmour cites similar feelings expressed by Carol Kidu,
‘Because aspects of the bureaucratic machinery are dysfunctional, people who should be going to the bureaucracy instead go to the politician for water, roads, clinics, school fees and endless needs that should be seen as MPs functions’.
Culture appears to also be a factor in determining how likely a person is to prioritise either ‘integrity’ or ‘intimacy’ when interacting with their political representatives. This goes a long way in explaining how politicians known to have been corrupt in the past can get voted in again, and again. Larmour concludes that in the Pacific, ideas of the nation and state are out of step with each other and he makes a poignant assertion worthy of development partners’ acknowledgement,
‘Discussion of corruption in the Pacific, by analysts and aid donors, has been preoccupied with the image of the Weberian state, aloof from society and dealing impartially and impersonally with its citizens’.
Populism and the political manipulation of it is another issue navigated in the book. Surveys in Fiji and Solomon Islands show large portions of the population as being suspicious of corruption in government, allowing politicians to use the ‘gut feelings’ of their constituents in opportunistic ways – anti-corruption campaigns – to garner popular support. That, according to Larmour, ‘is why coup leaders turn to them, in the absence of the legitimacy provided by popular election or international support. They “work” politically.’ But as the cleanup campaign in Fiji showed, such campaigns may score badly on other criteria, including effectiveness and fairness. Another danger expressed here, is that continuous anti-corruption discourse can act not only to discredit leaders, but displace essential debate on other essential policy issues, and foment disillusionment with democracy itself.
The stated aim of the book is to attempt to pose and answer the following key questions:
- Who is talking about corruption, and what are they talking about? What counts as corruption in this region?
- How do they explain corruption? Do popular explanations differ from official and academic ones?
- How much corruption is there in the region? What types are prevalent and where?
- What is the role of culture in explaining (or excusing) corruption?
- How do ideas about politics help us understand the pattern of corruption? Is all politics somehow corrupt?
- How can the results of anti-corruption campaigns be evaluated?
- What are the implications of differing interpretations of corruption for the implementation of policies against corruption?
Interpreting Corruption demonstrates that there are, in fact, many possible answers to each and every question raised. Where a person leans will vary depending on their country, village, socio-economic standing, academic and professional background, connection or involvement with corruption, changing public and popular attitudes and so on. The book provokes feelings well known to policymakers, that ‘every situation is different’ and, ‘where you stand depends on where you sit’ so anyone hoping to read this book and gain simple and definitive answers to questions of corruptions in the Pacific is likely to be disappointed. However, this book is a must read, not only for those with an interest in topics related to corruption, culture or politics, but particularly for development partners, especially donors in the region, hoping to gain valuable insights and a more nuanced understanding of such matters.
FOUR GLOBAL STORIES
Written by Alasdair Foster, Cultural Development Consulting
Honouring the Story
It’s Sunday. Children crowd around the exhibits, chattering animatedly and taking pictures on their mobile phones. They weren’t dragged here by parents or teachers; they were drawn by the magic of the place; the story it has to tell. Adults crane over their heads to view the dioramas or step back to admire the sheer spectacle of the massive installations rising two and three storeys inside the building.
This is the Museo Nacional de Antropología (MNA), the national museum of anthropology in Mexico City. It is a brilliant synthesis of conservation and creativity, for, while the museum has excellent climate control and lighting to ensure the protection of the works on show, it also brings flair and imagination to the story it unfolds of traditional Mesoamerica. (more…)
PiPP joins forum on the independent review of aid effectiveness
One Just World is to hold a forum on the topic, Is Australian Aid Fair Dinkum?
‘In a world where we have achieved so much, from quantum leaps in medical research to the development of sophisticated technologies, it seems implausible that there are more hungry people in the world today than the populations of the United States, Canada and the European Union combined.’
PiPP’s Executive Director, Derek Brien will be joining a panel of experts as they discuss the independent review of aid effectiveness. (more…)
Food for thought: exploring food security in the Pacific
It has often been said that nobody goes hungry in the Pacific, but is this true? Such assumptions are now being challenged by a number of indicators, suggesting real challenges around food security.
The Pacific Institute of Public Policy (PiPP) has now released its latest discussion paper, which explores food security in the Pacific.
Research Associate, Ben Sims, says ‘with agricultural productivity in decline, a diabetes epidemic, and a risk of increasing urban hunger, food security is one of the Pacific’s defining challenges. It is vital that the region builds on its strengths and traditions to cope with a growing population, urbanisation and climate change.’ (more…)
URBAN HYMNS: Managing urban growth
It may come as a surprise, but some towns and cities in the Pacific are more densely populated than Hong Kong or New York.
The Pacific Institute of Public Policy has now released its latest briefing paper, looking at the need for Pacific nations to better manage urbanisation. It suggests the need for political will and to start framing the discussion in a more positive light.
Urbanisation needs to be managed and viewed as a national priority. It requires governments to give serious consideration to housing, health, education, land, investment and employment policies; it requires people to think about how they want to live – to define what it means to be a Pacific islander in the 21st century.
According to Dr. Paul Jones of the Urban and Regional Planning Program at the University of Sydney:
‘People move for a variety of reasons, such as health, education and the excitement of the bright lights of the bigger towns and cities. People see urban areas as an alternative to rural life. Sadly, for many people, they are moving from one situation of poverty to another – that is, to towns and cities. In other words, urban poverty is seen as a better option than staying in rural poverty.’
Understanding the rural-urban relationship is vital as this means the social, cultural, economic and political relationships between urban and rural areas will better inform policies to define how we want our towns and cities to evolve, and how we can better serve remote outer island populations.Pacific governments generally seem to have been caught in a policy paralysis when it comes to urbanisation, perhaps hoping that the next generation will deal with it. Well the next generation is here and its time to act.
Joining the world’s economic parliament
After 16 years of negotiations, Vanuatu is poised to join the World Trade Organisation. By taking a seat at what is in effect the world’s economic parliament, Vanuatu is staking a claim as a member of the world economy to make decisions affecting itself and the rest of the world.
It is a controversial decision depending on your viewpoint: seen as surrender to powerful global interests by critics and as a mature policy of engagement by its supporters.
What is the reality? Did Vanuatu get the best deal it possibly could have?
With politicians due to vote to ratify the accession package in parliament by November 2011, it’s crucial that people understand what the WTO is, based on accurate information. Only with proper knowledge of the all facts will Vanuatu be able to make a good decision about whether or not to join. It is important also to analyse the deal as it specifically relates to Vanuatu, not accept analysis that springs from deals done by other countries. Each deal is tailor made for that country and much commentary seems based on more general concerns about the WTO in general.
The Pacific Institute of Public Policy has undertaken its own study of the deal and hopes the following analysis can provide a more reasonable discussion of what is at stake, leaving out the emotions, which have often run high, and to demystify a process that ultimately is neither a catastrophe nor a God-send. The banal reality is that WTO ascension is just not that big a deal: in short Vanuatu would appear to gain little and lose little, but will at least have a seat at the table. Because the process has gone on for so long, Vanuatu has already had to become WTO compliant on many fronts to participate in trade deals with many of its trading partners. In the end, joining the WTO is formalising what has been happening incrementally anyway.
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After 16 years of negotiations, Vanuatu is poised to join the World Trade Organisation. By taking a seat at what is in effect the world’s economic parliament, Vanuatu is staking a claim as a member of the world economy to make decisions affecting itself and the rest of the world.
It is a controversial decision depending on your viewpoint: seen as surrender to powerful global interests by critics and as a mature policy of engagement by its supporters. What is the reality? Did Vanuatu get the best deal it possibly could have?
With politicians due to vote to ratify the accession package in parliament by November 2011, it’s crucial that people understand what the WTO is, based on accurate information. Only with proper knowledge of the all facts will Vanuatu be able to make a good decision about whether or not to join. It is important also to analyse the deal as it specifically relates to Vanuatu, not accept analysis that springs from deals done by other countries. Each deal is tailor made for that country and much commentary seems based on more general concerns about the WTO in general.
The Pacific Institute of Public Policy has undertaken its own study of the deal and hopes the following analysis can provide a more reasonable discussion of what is at stake, leaving out the emotions, which have often run high, and to demystify a process that ultimately is neither a catastrophe nor a God-send. The banal reality is that WTO ascension is just not that big a deal: in short Vanuatu would appear to gain little and lose little, but will at least have a seat at the table. Because the process has gone on for so long, Vanuatu has already had to become WTO compliant on many fronts to participate in trade deals with many of its trading partners. In the end, joining the WTO is formalising what has been happening incrementally anyway.
PiPP pioneers direct dialogue between MPs and electorates in Vanuatu
As part of its civic engagement programme, PiPP is pioneering a new initiative – MP Face to Face – as a way of bridging the gap between politicians and voters.
MP Face to Face is an opportunity for the electorate to meet their elected MPs in a special forum being held on Tanna on July 15. For the first time, all 8 MPs from Tafea province will come together for a public forum to discuss better ways of co-ordinating local, provincial and national governance. Across Melanesia, letters-to-the-editor pages are full every day with voters complaining they only see their elected MPs in the run up to elections. At the same time, are voters expecting too much of their MPs who are often caught up with demands to address local issues when they should be concentrating on national issues? What are the roles of elected officials at local, provincial and national level?
With elections looming in PNG and Vanuatu next year, PiPP aims to highlight civic awareness with a gathering of MPs and communities at the provincial level to better inform and invigorate the democracy process, manage voter expectations and bring more accountability to the role played by MPs.
The first forum will be held at the Nikolaten Lenakel on Friday July 15 from 10am to 2pm, welcome to all. Radio Vanuatu will broadcast the event live and film it for a later tv screening.
ISLAND CITIES: Developing a positive urban agenda
This week Bangkok, Thailand hosts the fifth Asia-Pacific (APUF5) forum with the theme ‘Cities of opportunity: partnership for an inclusive and sustainable future’. The three day conference convened by UNESCAP and partners focuses on urban development issues and identifying good practices and approaches.
A few years ago, humanity entered a new era. According to a report of the United Nations Population Fund (UNFPA, 2008) ‘in 2008, the world reached an invisible but momentous milestone: for the first time in history, more than half of the human population, 3.3 billion people, are living in urban areas’. By 2030, it is expected that almost 5 billion people, or 60 per cent of the world’s population will be city dwellers. As people around the world gravitate around city government and infrastructure, we may also be witnessing the twilight of the ‘nation state’ era as ‘city states’ re-emerge as the primary governmental power of the twenty-first century; as they once were in history.
In its 2008 report, the UNFPA stresses that ‘urbanisation—the increase in the urban share of total population—is inevitable, but it can also be positive. The current concentration of poverty, slum growth and social disruption in cities does paint a threatening picture: Yet no country in the industrial age has ever achieved significant economic growth without urbanisation. Cities concentrate poverty, but they also represent the best hope of escaping it’.
The Pacific’s population is booming and expected to to exceed 10 million in June 2011, and reach 15 million by 2035 – ‘the growth rate means that another 188,000 people – equivalent to the population of Samoa – are being added to the total each year’ (SPC, 2011). In every country of the Pacific, urban population growth is exceeding the national growth rate. Yet, with a few exceptions, urbananisation has been ignored or viewed as a negative trait to be stopped, as governments and development agencies have tended to focus their attention on rural development. Trying to keep people out of cities and towns is futile, and stands in the way of initiatives to ensure growing populations have access to the services and facilities required to sustain and improve quality of life.
