Participatory Monitoring of Anti-Corruption Conventions (GT0118)

Which is the problematic than the commitment addresses? The problem of high levels of corruption in public sector institutions in Guatemala is evident in the institutional weaknesses in the regulatory and organizational structure to efficiently and comprehensively address the different manifestations of the phenomenon in public management, lack of technological tools adequate to identify and prevent the risks of corruption, poorly objective and technical selection of officials; because the election, promotion, promotion, dismissal and compensation systems do not obey the principles of the professional career, little transparency in the management of public information, weak social and institutional training in a culture of probity and lack of adaptation of the relevant regulations. international requirements and commitments on the matter. The manifestations of corruption that are observed at various levels of the public sector, according to the studies analyzed as well as the measurement indicators used by international organizations, make the issue a central problem, due to the impact it has on various aspects of human development, limiting the capacities of governments to effectively, efficiently and effectively provide the basic services and essential rights of the population, producing at the social level loss of citizen confidence in the institutions of the State and the democratic regime itself. In that same order, it has been indicated that corruption is one of the features that has been present as a constant in the exercise of power by governments, in complicity with private actors. On the other hand, on different occasions it has been mentioned that the country is among the most corrupt States in the world, this derived from the lack of transparency in the formulation and evaluation of public interventions and the poor perception of local decision-making actors. decision and Guatemalan civil society on the quality of public processes. The State of Guatemala has acquired international commitments in terms of prevention and fight against corruption, through the United Nations Convention against Corruption, signed on December 9, 2003; and, the Inter- American Convention against Corruption, signed on March 29, 1996, and complies with participating in the evaluation processes in which it is examined both through the Mechanism for the Examination of the Application of the United Nations Convention Against Corruption , as well as the Follow-up Mechanism for the Implementation of the Inter-American Convention against Corruption (MESICIC), from which recommendations have been received to strengthen and improve detected regulatory gaps, overcome obstacles and challenges that have been evidenced, and strengthen prevention and fight actions against corruption in general. However, at the national level there is a lack of knowledge of the provisions stipulated in both conventions and no follow-up mechanisms have been institutionalized for the implementation of the provisions stipulated in them and of the recommendations emanating from the respective follow-up mechanisms. Therefore, it is necessary to implement a national strategy to make the conventions and recommendations positive. That have been received, which implies a methodology for monitoring and evaluating effective implementation, which by definition includes the active participation of civil society, to strengthen feedback and social audit exercises.

Which is the commitment? Coordinate the implementation and follow-up of the commitments acquired by the State of Guatemala, contained in the United Nations Convention Against Corruption and the Inter-American Convention against Corruption, promoting a participatory evaluation to determine the degree of compliance with both conventions and recommendations. derived from the Mechanism for the Examination of the Application of the United Nations Convention against Corruption and the Mechanism for Follow-up of the Implementation of the Inter-American Convention against Corruption reflected in the evaluation reports made to the State of Guatemala. For which, technical groups will be formed that integrate the public entities responsible for implementing actions to prevent and fight corruption in Guatemala; and, to organized civil society organizations, in order to promote a national strategy that promotes the fulfillment of the commitments acquired through both conventions.

How will you contribute to solve the problematic? Through the generation of reports on monitoring compliance with the recommendations made to the State of Guatemala, as a state adhered to the United Nations Convention against Corruption and the InterAmerican Convention against Corruption, as well as through the establishment of strategic alliances that contribute to strengthening transparency in the exercise of the public function, it will be possible to determine the degree of progress in the fulfillment of both conventions and it will be possible to promote the National Strategy that an action plan for each convention and thus be able to continue with the their application in the country. In such a way that, through this commitment, the advances and challenges of the State of Guatemala in the application of the conventions will be evidenced, based on quantitative and qualitative data, which will allow the generation of concrete proposals for the effective approach of prevention and fight against corruption.

Why is it relevant to OGP values? This commitment is of special importance since, by reviewing and giving national follow-up to international commitments against corruption, transparency is promoted in the exercise of the public function and an improvement in anti-corruption mechanisms; Likewise, it is proposed to include civil society with a greater presence, promoting citizen participation in public decision-making. Accountability on the part of the institutions in charge of monitoring both mechanisms against corruption is essential to be able to carry out serious exercises of social auditing and their control. Generating and exposing information on progress in complying with international obligations necessarily improves accountability to the population. In addition, this commitment will integrate more than 20 public institutions involved in compliance with international conventions on the prevention and fight against corruption, with the active participation of civil society organizations. In this sense, this process will generate credibility and citizen trust in public management.

Additional Information This commitment is closely aligned with the National Development Plan: K’atun Nuestra Guatemala 2032, with respect to the following axes: a) Axis of Wealth for All, which establishes that “The stronger role of the State must be accompanied by a greater accountability, which implies abolishing all kinds of practices that undermine it, such as patronage, nepotism, corruption, as well as the seizure of political and economic power by certain elites”; and, b) State Guarantor of Human Rights and Driver Axis, which seeks to: “Generate the political, legal, technical, administrative and financial capacities of public institutions, to put the State in a position to lead a process of sustainable development, with a rights-based approach within the framework of democratic governance”. In addition, in the Sustainable Development Goals -ODS-, Development Goal 16 stands out: “Promote peaceful and inclusive societies for sustainable development, facilitate access to justice for all and create effective, responsible and inclusive institutions at all levels. ”, which in one of its goals states “Substantially reduce corruption and bribery in all their forms”. Therefore, in order to materialize international guidelines to strengthen transparency in the exercise of public functions as a basis for the social development of the State of Guatemala, it is necessary to carry out institutional actions aimed at strengthening mechanisms against corruption in the country. On the other hand, the Democratic Criminal Policy of the State of Guatemala 2015-2035, determines as one of its transversal axes the “Fight against Corruption”, to achieve the “Implementation of institutional mechanisms aimed at eliminating corrupt practices in the exercise of public administration and the private sector, strengthening the promotion of the values of the democratic rule of law, transparency, accountability and the culture of reporting, ensuring protection mechanisms for whistleblowers, as well as the development of awareness campaigns, among others. ” Finally, one of the five pillars of the General Policy of the Government of Guatemala 2020-2024, is that of “Responsible, Transparent and Effective State” aimed at effectively and transparently managing State institutions, to put them at the service of the citizens. citizens, through institutional strengthening, modernization and reduction of corruption.

Milestones: goals/stages that allow verifying the compliance with the commitment 10.1 Convene a institutions public with competences in the matter to the formation of two multisectoral tables, the first, the Working Table of the United Nations Convention Against Corruption; and the second, the Working Table of the Inter-American Convention Against Corruption. The purpose of each Work Table will be to follow up on 2023 the implementation of the respective convention and the recommendations received within the framework of the follow-up mechanisms of the same. Both Tables will be made up of a principal delegate and a substitute delegate officially designated by each entity. 10.2 Generate a report on compliance with the implementation of the recommendations made to Guatemala, contained in the Reports to the country of the United Nations Convention against Corruption and the Inter-American Convention against Corruption; as well as the recommendations emanating from the Mechanism for the Examination of the Application of the United Nations Convention against Corruption and the Mechanism for Follow-up of the Implementation of the Inter-American Convention against Corruption, in which the State of Guatemala has been evaluated. 10.3 Carry out an open consultation process, in the tables that provide follow-up to both the United Nations Convention against Corruption and the Inter-American Convention against Corruption, placing the compliance report on a website and other consultative events with experts, also seeking the participation of citizens, women, indigenous peoples, people with disabilities and other sectors of civil society. CPCC CPCC CPCC January 2022 January 2022 September 2022 August 2023 August 2022 December 2022 10.4 Formulate and validate a roadmap for each of the conventions, to follow up on the implementation of the commitments and/or recommendations that have not been fulfilled. CPCC Septiembre 2022 Diciembre 2022 10.5 Prepare and present an executive report, in which the implementation of the roadmaps that contain the commitments and/or recommendations that have been defined for both conventions is evidenced. 10.6 Prepare the final evaluation report and publicly present the results of each implemented roadmap as well as the mechanisms that will be used to execute the actions that guarantee the implementation of the recommendations. CPCC CPCC Enero 2023 Julio 2023 Junio 2023

Action Plan Review

Compromiso 10. Seguimiento a convenciones internacionales en materia de transparencia y anticorrupción

● Verificable: Sí

● ¿Tiene un enfoque de gobierno abierto? Sí

● Potencial de resultados: Sustancial

Comisión Presidencial contra la Corrupción, CPCC. CosT Guatemala y Prosperiti Guatecívica.

Para una descripción completa del compromiso, ingresa al siguiente vínculo: https://bit.ly/3uKdrdf

Contexto y objetivos:

Tal como señala el plan de acción, el combate a la corrupción continúa siendo un reto importante para Guatemala. La edición 2021 del Índice de Percepción de la Corrupción ubica al país en el puesto 150 de 180 países, con una calificación de 25/100 ^[39]. De igual forma, de acuerdo al Barómetro Global de la Corrupción 2019, un 46% de la población consideró que la corrupción había aumentado en el último año, mientras que un 25% de los usuarios de servicios públicos encuestados admitieron haber pagado un soborno ^[40].

En diciembre de 2006, mediante un acuerdo entre las Naciones Unidas y el Estado guatemalteco se creó la Comisión Internacional Contra la Impunidad en Guatemala (CICIG), con el objetivo de “apoyar y fortalecer a las instituciones del Estado de Guatemala encargadas de la investigación y persecución penal de los delitos cometidos por cuerpos ilegales y aparatos clandestinos de seguridad” ^[41]. Las investigaciones de la CICIG y el Ministerio Público revelaron prácticas de corrupción en los gobiernos de Otto Pérez Molina y Jimmy Morales. Bajo el gobierno de este último, iniciaron una serie de acciones en contra del trabajo de la Comisión que terminaron con la no prorrogación de su mandato y su disolución en septiembre de 2019 ^[42]. 

El país ha suscrito diferentes instrumentos internacionales como la Convención de Naciones Unidas Contra la Corrupción y la Convención Interamericana Contra la Corrupción. Para ambos instrumentos, el Gobierno se somete a mecanismos de examen y seguimiento a la implementación, de los que surgen recomendaciones en diferentes áreas. Por ejemplo, el Mecanismo de Seguimiento a la Implementación de la Convención Interamericana Contra la Corrupción (MESICIC), en su quinta ronda hizo recomendaciones al país relativas al manejo de los regímenes de vinculación de servidores públicos y al cumplimiento de la Ley de Contrataciones del Estado por parte de las municipalidades ^[43].

El Gobierno reconoce en el plan de acción que existe desconocimiento público de las disposiciones de ambos instrumentos y que no existe un mecanismo de seguimiento que asegure una efectiva implementación y que incluya la participación de la sociedad civil. Dentro del cuarto plan de acción, bajo el compromiso 14, se incluyó un hito relativo a la elaboración de informes de seguimiento al cumplimiento de compromisos internacionales en materia de corrupción, que no alcanzó mayores avances, entre otras cosas, por la afectación de la pandemia por la COVID-19 al proceso de implementación.

La propuesta de este plan contempla un proceso en tres etapas. Primero, el establecimiento de mesas multisectoriales conformadas por instituciones del Gobierno para dar seguimiento a la implementación de ambas convenciones y generar los respectivos informes de cumplimiento. Segundo, un proceso de consulta abierta que permitirá la participación de la sociedad civil para la revisión, validación y observaciones a los informes de cumplimiento. Y tercero, la formulación de planes de acción para el seguimiento a la implementación, incluyendo informes trimestrales y un informe final sobre los resultados alcanzados para ambos planes ^[44].

La publicación de los informes de seguimiento, informes trimestrales e informe final de resultados son relevantes al valor de transparencia de OGP, ya que pondrán a disposición información relevante para la ciudadanía. El proceso de consulta abierta propiciará la participación cívica, abriendo espacios para que las organizaciones de la sociedad civil presenten sus puntos de vista y recomendaciones para fortalecer el proceso.

Potencial para resultados: Sustancial

En la actualidad la información sobre los mecanismos de examen para ambas convenciones y las recomendaciones para Guatemala no se encuentran disponibles en un sitio web centralizado. Los usuarios interesados deben dirigirse a los sitios web de Naciones Unidas o la Organización de Estados Americanos para consultar los compromisos asumidos por el país. El Ministerio Público (MP) y la Comisión Presidencial Contra la Corrupción (CPCC) presentan actualizaciones sobre estos procesos en sus portales de noticias, de una forma que no facilita el seguimiento en el tiempo.

Por ello, ofrecer de forma centralizada esta información, incluyendo también las acciones específicas que el Gobierno está tomando para su cumplimiento, representa un cambio importante en esta área de política pública. En este punto también destaca el proceso de simplificación de información que, de acuerdo a funcionarios consultados por el IRM, se llevará a cabo para promover la participación de grupos tradicionalmente excluidos [45].

Por otro lado, considerando que el fenómeno de la corrupción genera graves consecuencias para la ciudadanía en general ^[46], se vuelve crucial propiciar espacios para que la sociedad civil pueda contribuir y fiscalizar el cumplimiento de los compromisos adquiridos por el Gobierno. En este sentido, la iniciativa propuesta representa un potencial sustancial para generar resultados.

Para alcanzar el potencial de resultados de este compromiso, el IRM considera crucial mejorar las condiciones para la participación de las organizaciones de la sociedad civil en espacios con el Gobierno. Como señalaron los representantes de las OSC entrevistados, dada la discrecionalidad otorgada por las reformas a la ley de funcionamiento de las ONG en el país, se ha generado un clima de incertidumbre y temor respecto a las consecuencias que podría traer para una organización señalar el incumplimiento de actores del Gobierno. Este clima es uno de los primeros aspectos que deberían abordarse para asegurar una participación en igualdad de condiciones.

Oportunidades, desafíos y recomendaciones durante la implementación:

Este compromiso podría permitir al Gobierno de Guatemala mejorar significativamente no solo la percepción de corrupción entre la ciudadanía, sino también fortalecer las diferentes áreas de funcionamiento del Gobierno que todavía presentan vacíos que facilitan la corrupción. Institucionalizar los espacios de coordinación gubernamental y participación ciudadana será fundamental para alcanzar este objetivo.

Como se señaló anteriormente, dos desafíos importantes dentro de este proceso serán: garantizar la calidad de la participación de la sociedad civil, más allá de la recepción de sus comentarios y propuestas, y generar procesos de rendición de cuentas que contemplen consecuencias por incumplimiento por parte de los funcionarios de gobierno. En este sentido, el IRM recomienda:

● Incluir la participación de la sociedad civil dentro de los procesos de coordinación y formulación de los informes de seguimiento y para la implementación de los planes de acción. Así se asegura contar con sus perspectivas en todo el proceso.

● Desarrollar, en coordinación con las entidades correspondientes como la Contraloría General de Cuentas, procedimientos que permitan sanciones administrativas para funcionarios que no están dando cumplimiento a los compromisos adquiridos por sus instituciones.