While searching for information on the scale of Corruption in India, one is struck by the amazing dearth of any credible information.

There are a whole host of scales and indexes for everything under the sun including the esoteric Business Confidence index, Human Development index, Happiness index to the more mundane such as Inflation, GDP, Government Approval ratings etc. But for an all important issue like Corruption, the sole measure that exists is the Corruption Perception index maintained by an international NGO, Transparency International. While the index has done immense service to the anti-corruption cause, it is primarily meant for a broad level comparison among countries and is based on perception rather than actual ground level data. Its utility in managing our country’s internal affairs is limited. Apart from that, there are no meaningful studies on the geographical spread of Corruption, nor any information on its time line trends, no best practices, not even a common place commission of inquiry on the spread of Corruption.

Overall there are no credible estimates of the quantum or cost of corruption in India. This has led to a situation where a feeble improvement on the Corruption Perception Index off late has hidden an astounding growth in the quantum of Corruption as evident from recent disclosures – Koda scam, I.A.S. raids, 300 Crorepati babus. The monetary estimates of Corruption normally vary from billions of dollars annually to trillions of dollars in accumulated figures. The figures are either based on very broad rules of thumb or are completely a figment of one’s imagination. The higher the estimate, the higher is the air of invincibility around it. Most of these figures have a hollow ring to them and are unable to mobilize public opinion to force the hands of the government. We continue to live in a hazy daze where everyone knows that Corruption exists but there is no official confirmation of the same. It allows the government to put their blinkers on and go about their work ignoring the existence of Corruption completely while continuing to bring out new schemes & policies that benefit the intermediaries more than their intended recipients. There is another school of thought that believes that growth in economy will itself deal with Corruption, so we may choose to ignore it till such time we are riding the growth tiger. In the process however, Corruption has grown stronger and stronger. Most importantly, it has led to a situation where Corruption has become a low risk, high return game and is feeding on itself to grow monstrously.

There are strong reasons for developing new metrics to measure Corruption despite its underlying difficulties. Some of them are enumerated below:

1. Primary reason for measuring Corruption is that measurement is the first step towards a cure. We need to measure something to be able control it.

2. The monstrous growth in Corruption can only be dented by a committed public opinion. Such a public opinion can only be built around a systematic measure of Corruption.

3. Behind the facade of anti-corruption, there is a growing tolerance for corruption in our society. It is undesirable, everyone says, but inevitable. Inevitability blunts public opposition. The inevitability stems largely from our inability to measure and track Corruption.

4. The smokescreen of impossibility of measuring Corruption because it is secret is often used to prevent probing on this front. However secrecy hasn’t stopped us from probing several other clandestine issues such as Sexual preferences & Political inclinations( Election Surveys, Exit Polls).

5. Corruption has always been treated as aberration of individuals who need to be exposed & punished. Hence very little effort has been made to check institutionalized Corruption which needs measurement on an ongoing basis.

6. Most of our present knowledge of Corruption levels is perception based. Even those perceptions are limited and shaped by new disclosures in scams. We have never pro actively sought to measure Corruption, which alone can deal with the fast mutating problem.

We have come a very long way from a Rs. 62 crore Bofors scam which shook the Central Government and led to a Prime Minister loosing election, to a Rs. 4,000 crore Koda scam where another tainted politician was sworn in as state Chief Minister soon after the scam came to light. How much farther do we need to travel before we act? The time to act is now!!

Its not for nothing that Customs is the most sought after cadre behind IAS & IPS in Civil Services Examination. The department reeks of Corruption. Its has got an ever flowing stream of ‘liquid cash’ that beckons new recruits. Estimated average daily bribe collected by Customs officials range from Rs 50,000 to Rs 2 lakh as per graft investigators. Three recent HT stories give us a glimpse of the rot with in the department.

Hindustan Times, 09 Feb 2010: DRI raids and seizes Rs. 1.75 crores from Ashok Gulati, a Customs House Agent (Private entity who provide services to importers and exporters). He confesses that apart from Rs. 40 Lakhs the rest belonged to 4 Customs Officials including a Deputy Commissioner. DRI transfers the case to the Customs & Excise Department who order an internal inquiry.

Hindustan Times, 11 Feb 2010: The CHA, Ashok Gulati retracts his earlier statement. He now claims that the entire money belongs to him.

Hindustan Times, 21 Feb 2010: The story gives a detailed account of pen drives, cryptic codes & collection agents used by Corrupt customs officials to conceal their activities.

While the stream of corruption flows unabated, vigilance agencies only end up covering up whatever little gets exposed. There are many questions that fill our minds begging for answers:

1) Why were the customs officials not raided immediately after there were enough corroborating evidence.

2) Why was the CHA not used as a decoy to entrap the corrupt officials.

3) Has any systematic effort been made to counter this entrenched web of corruption?

4) How many officials have been raided/caught and successfully prosecuted in the past one year.

5) Are new recruits who opt for Customs asked why they did so?

6) What is it that makes Customs such a lucrative cadre choice, if not Corruption.

I was forced to mull on this question by the runway popularity of a recent post by Fumiko Nagano on the World Bank blog regarding the efforts of 5th Pillar to fight Corruption in India with Zero Rupee Notes. Since then, it has taken the digital world by storm with several hundred twitterattis including @ShashiTharoor and @Gulpanag retweeting its link and several prominent websites including The Economist, CNN, Boing Boing featuring related posts. 5th Pillar is Chennai based, grass roots organisation that has been working against Corruption using RTI and Zero Rupee Notes. It encourages people to use Zero Rupee Notes distributed by them to counter requests for bribe. This is akin to ‘Gandhigiri’ as it tries to shame the Corrupt officials into giving up Corruption instead of using punitive measures. For the uninitiated, the concept of Gandhigiri was introduced by a 2006 Hindi film, Lage Raho Munna Bhai. It consists of confronting the tormentor with moral force, kindness and non-violence in true Gandhian tradition. Since the release of the movie, strikers, protesters and activists have begun to distribute roses or flowers to draw attention to their cause. Even powerful Politicians & Police have sometimes resorted to  Gandhigiri in an attempt to educate the public and convey their message.

Like Gandhigiri, the Zero Rupee note idea too is fairly simple and does not require much resources to implement. The idea also finds so many takers because it promises to fix a vexatious problem without too much turmoil. The real question is how effective the solution is? To my mind, there are three chief ingredients that can cause Gandhigiri to succeed:-

1. The foremost factor behind the success of Gandhigiri is the shock value associated with it. Since the tormentor does not anticipate such a response from the victim, he is shocked into compliance by the act of Gandhigiri. This factor is largely responsible for the initial success of Gandhigiri. However as the novelty fades and things fall back to normal, its effectiveness reduces dramatically.

2. The second chief ingredient of Gandhigiri is its viral nature. Nothing succeeds like success. The success of a few individuals can drive others to follow suit. If a million people who have got the Zero Rupee Note, start using it to pay the corrupt, the impact will be huge. The impact will not just be due to the ’shock value’ but also due to to the collective strength of the effort and the inherent weakness of the corrupt.

3. The third ingredient which is always latent is the threat element. Ironically it is diametrically opposite to what Gandhiji preached. For example in the two recent cases of Gandhigiri – MNS distributing elementary Marathi books to North Indian Taxi Drivers and RJD workers distributing roses to shopkeepers a day prior to ‘Bihar bandh’ requesting them  to keeps their shops closed – both had unmistakable elements of threat. Even in the movie, Gandhigiri succeeds largely because it is done by ‘Munna Bhai’ who is a gangster. The lurking element of threat and power is what makes Gandhigiri potent. It is debatable how effective it would be in the hands of the weak and the helpless. None have said this better than Ramdhari Singh Dinkar in his masterpiece ‘Kurushetra’  :-

क्षमा शोभती उस भुजंग को, जिसके पास गरल हो,

उसको क्या, जो दन्तहीन, विषरहित, विनीत, सरल हो

(Forgiveness only adorns a serpent who has venom,

It does not behove the toothless, poison-less and the imbecile.)

To set the record straight, this post is not meant to deride or debunk the idea of a Zero rupee note. It is meant to put things in perspective and set the expectations right. At the very least it is an idea that takes the fight to the doorsteps of the Corrupt officials. It gives even the poorest of the victims a tool to register their protest. Yet it is a desperate tool for desperate people. Anyone who can afford bribe is highly unlikely to use the Zero Rupee Note. Ironically, those who can’t afford bribe are also the most vulnerable in the face of any possible retaliation from the corrupt. This is where the ground operations of 5th Pillar play a crucial role by providing support, succour and advice to the hapless victims. There is also a strong case that can be made of a possible co-operation between the 5th Pillar and  the Legal BPO of the kind proposed by @Shaffi Mather to assist the victims of Corruption, if Gandhigiri alone does not work.

The real purpose of this post however, is to emphasise that Corruption is a serious issue just like Health, Education, Infrastructure, Poverty and Population. It requires similar allocation of resources not just from the government but also from all stake holders and well wishers. It requires us to institute academic studies, aggregate knowledge that already exists, monitor and measure progress over time and place, spread awareness, expose, control and eliminate Corruption. Like any other serious problem, it deserves a serious response. Mere symbolism will not be enough.

Out of the many advices that Gandhiji gave to the nation, none has been turned on its head more completely than his three monkeys sermon. His three monkeys symbolised the purity of inner self with ‘See No Evil, Hear No Evil and Speak No Evil’ . The bureaucrats and the politicians have conveniently taken two of his three advices to their hearts - See No Evil and Hear No Evil.  That is what prevents them from seeing any corruption or hearing about any either.

Governments routinely go about their work with blinkers on, paying scant attention to the rampant corruption all around them. While government can’t find corruption, people can’t seem to lose it. A common man meets corruption everywhere. To him, government itself has become the fountainhead of corruption. Wherever citizens come in contact with government, corruption potentially happens. The incidence of corruption is so pervasive in the day to day life that it is ironical that government vigilance departments have to work so hard to nail corruption. When corruption is present everywhere, all one needs is the determination to confront it. Yet the charade of catching and releasing culprits goes on, while the malady of corruption festers and grows by the day.

If the government is serious about confronting corruption, first of all, it needs to get its head out of the sand and boldly acknowledge the existence of the problem. Any solution can only emanate from there. The government can then begin its war on corruption by holding ‘Anti Corruption Weeks’ for promoting awareness and informing about future corruption control methods.  This should be followed by ‘Corruption Audits’ of departments for both the people as well as the processes. The aim of these audits should be to locate those departments that can be easily rid of corruption and used as models for the rest of the departments. The audits should review official documentation and the procedures that are being followed, especially with respect to common citizens. It should also review the financial status of the officials to match their known sources of income. Most importantly public comments should be invited to gauge the perception about the department. Wherever feasible social media should be used for the purpose. The audits should certify certain departments as ‘Corruption Free’ based on their findings. The rest of the  departments should be asked to draw a migration plan for being certified ‘corruption free’ after repeat future audits.Once certified, the departments should be subject to even higher standards of accountability and any transgressions should be severely punished. All this may seem like a fairy tale but a driven person like T. N. Sheshan or A. P. J. Kalam, as our ‘Corruption Czar’ can quickly turn fairy tales into reality.

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Another common den of corruption is the Railways. Corruption here, is like a 24 hour news channel, its always on. Street knowledge will tell you that if you have no reservation and you still need to travel, it is easier for you to board the train with a simple Platform ticket or even no ticket at all, rather than with a full paid ‘wait-list’ ticket. Why? Because it gives the Ticket Inspector more room to play with. A ticket-less traveler in the reserved compartment travels as the personal guest of the Ticket Inspector. Its a win win for both of them, the traveler pays half the fare , the Ticket Inspector gets his bribe, only the government looses out in between. However the situation is downright frightening in the unreserved class. Passengers are packed like sardines. Peasants and poor people are routinely harassed by the GRP and the Ticket Inspectors.  A number of times such harassment leads to their off loading from running train, often causing severe injuries and sometimes even death. But the extortion carries on throughout the days and especially the nights.

Politics and corruption have almost become synonymous in India. Of all corruptions, political corruption is the most brazen of them all. Politicians easily explain away corruption as political conspiracy and opposition’s move to defame them. The images of Sukhram caught with crores stashed under his bed, Narsimha Rao’s son declaring more than 200 crores in VDIS, Shibu Soren casting his vote in favour of the government in lieu of money found in his bank account, Mayawati declaring to the Income Tax Department, hundreds of crores of rupees, as personal gifts from her poor followers, and the very recent Buta-son act – all have one thing in common – the persons concerned continued in active politics even after being exposed. Politicians use their control over the levers of power to milk the system on a sustained basis. Their need for corruption grows in tandem with their stature as corruption is their primary source of revenue for keeping their political fortunes alive.

If corrupt politcians and officials are the Gods of Corruption, the Judiciary is truly the temple of corruption. Armed with the powers of contempt of court, and the discretionary powers of granting bail and dispensing punishment , Judiciary lords over corruption. Everybody swears by the Judiciary and bows before it. It is difficult not to get corrupted by such power. Corruption has been institutionalised in Judiciary, and everyone partakes. The lawyers, registrars, court orderlies, and the judges all join in to fleece the litigants and the accused. The longer the case meanders, the more chance there is to extort money. From the most minor task of seeking deferral to the grat of bail, and the highest task of deciding the case, everything carries a price tag. The secrecy, the lack of alternatives, the fear of reprisals, everything conspires to keep the judicial corruption under wraps. In the odd cases where it comes to light, progess is slow and ineffective. Not only does the Judiciary brim with corruption, it is also used by the beureucracy to cajole common citizens into submission. The threat of facing a corrupt, inefficent Judiciary soon brings them to their knees. Government after all, is not only the largest litigant in the country by a huge margin, but is also the largest abuser of law to persecute citizens on fabricated or inflated cases.

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