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InterAksyon.com
The online news portal of TV5
Whenever governance in the Philippines is talked about, the issue of corruption immediately crops up. It is practically considered as “endemic” to the country.
During the Spanish Era, Jose Rizal described the corruption pervading Philippine society as a “social cancer.” Media calls it “garap and korarap.” In the language of bureaucrats, it is referred to as “S.O.P.” (meaning standard operating procedures), implying that corruption is a built-in feature of government operations. It was also described as “for the boys” but in these days of gender equality I refer to it as “for the boys and girls.” Academics and students of corruption clinically refer to it as “negative or deviant bureaucratic behavior.” However, cynics counter that it is corruption which is normal and honesty which is deviant.
Corruption persists in spite of efforts to minimize and control this social cancer. In spite of the promises of all administrations to eradicate it, high levels of corrupt activity continue to proliferate. Each time a new president assumes office, he or she makes a big show of fighting corruption, only to lose effectiveness while public interest and support eventually peter out.
For decades, multilateral institutions and bilateral donors have expended hundreds of millions of dollars in anti corruption projects. Ironically, corruption has not abated even as they pour more resources to help clean up the country. This sharp rise was noted especially since 2005.
Can there be a Pinoy solution to corruption?
“Only Filipinos can solve corruption in the Philippines.” This is the observation of the Chief of Party in a large anti-corruption project funded by a bilateral donor. For him, the challenge is to find a Filipino solution to this blight on good governance.
I agree completely with my friend. If corruption persists, it is not for lack of knowledge on why it occurs, where it occurs, and what can be done to keep it in control. Corruption is perhaps the most studied phenomenon in Philippine governance. All the studies on corruption in the Philippines can easily fill a specialized library. These studies and analyses always contain recommendations and proposals for eradicating corruption.
There is no lack of reorganization measures, capacity-building activities and workshops, conferences, public hearings, revised rules and regulations, and laws which are formulated whenever there is a surge of anti-corruption public sentiment, a new administration and intensified public demands for reforms.
Under the formal system of government, corruption is not tolerated. The laws, rules and regulations of Philippine public administration system are among the most detailed. There is a rule for every public activity. Ironically, these laws, rules and regulations are periodically bypassed, ignored and violated with impunity.
The earliest comprehensive study on corruption
The earliest comprehensive study on corruption was conducted by the U.P. College of Public Administration during the seventies. The team was headed by Dr. Ledivina V. Carino and coordinated by Dean Dr. Raul P. de Guzman. I had the good fortune to be part of the team. Nowadays, contemporary researches hardly mention this landmark study but most of them actually echo and re-enforce its findings.
To be sure, there were earlier studies but these were largely focused on legal and administrative aspects. For the first time, efforts were made to examine corruption as a multidimensional phenomenon—involving not only the legal, administrative and economic aspects but also historical, sociological and cultural dimensions as well.
In addition to the usual definition of graft and corruption, a historical perspective was written byProf. Jose N. Endriga. Dr. Maria Concepcion Alfiler wrote on the specialized anti-corruption agencies which were created to deal wit h the problem. Dr. Ledivina Carino wrote on the incongruity between provisions of law and cultural values and norms. Dr. Victoria Bautista wrote about regulatory agencies.
On the other hand, I wrote a case study on graft and corruption in revenue generation - the Bureau of Internal Revenue, which is now considered a classic in the literature of corruption.
'What is moral is not necessarily legal'
Looking back, one of the most significant findings of that study was on the impact of cultural norms and values on corrupt behavior. Corruption has always been considered as a legal and criminal issue. The behavioral aspects of corruption were largely ignored. The assumption has always been that what is legally forbidden is likewise morally reprehensible. It is not necessarily so. Dr. Carino pointed out that certain forms of behavior which are acceptable in terms of cultural norms and values are not allowed by government regulations.
Take nepotism. It is considered admirable for a person to take care not only of his family but also his extended family. Thus, family members expect their more successful relatives in government to provide jobs, extend favors, award contracts, or share the fruits of corruption with them.
The culture of strong kinship ties can be extended to classmates, fraternity brods and sorority sisters, townsmates, village mates and schoolmates. In these modern times, it can euphemistically be called “networking.”
Nepotism is forbidden by government regulations because it is not democratic and results in an uneven playing field. Nonetheless, the practice is culturally acceptable and even expected.
Dr. Betty Ventura of the U.P. Psychology Department says that corruption is rooted in group-centeredness. “If something has been done, our tendency is to protect the group.” This is clear in the behavior of family members, and of fraternity brothers who cover up for each other. “Our family-orientedness can give room for corruption…. It can benefit family members who don’t ask where huge amounts of money are coming from.” She is quick to point out that group orientation is not totally bad but contributes to perpetuating corruption.
Ironically, love and loyalty for family which is enshrined in our culture and values can push people in government to corruptive behavior.
Recognizing the role of norms and values will help us search for Filipino values which discourage corruption.
(To be continued. This column will form part of a bigger study on the search for Pinoy solutions to corruption. Please send your reactions and contributions to this column.)
