1 Introduction

Corruption affects the public and private sectors in every country, undermining development, the rule of law and democratic legitimacy. It hampers progress towards the UN Sustainable Development Goals (SDGs) and climate commitments while undermining efforts to reduce global inequality. When officials abuse public power and trust for their private gain, the consequences are far-reaching and extend well beyond the direct economic losses.

It is difficult to determine the global cost of corruption, but it is estimated that 5–7 % of the world’s GDP is lost to corruption. In some countries, the resources lost to corruption may represent a significant proportion of the national budget, and these losses have a particularly serious impact on the ability of developing countries to provide basic public services. In many countries where corruption is endemic – where powerful private interests influence legislation, institutions and the state – there is little political will to combat the problem. The result is large-scale corruption that enriches the elite at the expense of the wider population.

Corruption, tax evasion and illicit financial flows undermine domestic resource mobilisation. High levels of corruption and capital flight reduce domestic consumption and lower investment levels, both public and private. The result is fewer schools and hospitals, lower police salaries, inadequate infrastructure development and increased unemployment and inequality. Investments are steered towards sectors that provide the highest short-term returns, often at the expense of wider social benefits. Overall, this weakens opportunities for economic growth and democratisation in developing countries and tends to exacerbate inequality and weaken trust in the authorities, institutions and democratic processes.

Paradoxically, the proceeds of corruption in developing countries are often placed in Western countries where the rule of law is strong and political stability is high, arriving in many cases by way of financial centres or jurisdictions with a significant degree of secrecy. Western companies are often involved in cases of large-scale corruption, either through paying bribes paid to public officials in developing countries or by facilitating illegal transactions or helping to launder the proceeds of corruption.

In 2020, Norad’s Department of Evaluation pointed out that Norway lacks a coherent strategy for its anti-corruption efforts, and that clarification was needed on how to ensure that this is addressed as a cross-cutting issue. A report by the National Audit Office of Norway on the risk of financial irregularities in the administration of development aid (Document 3:4 (2024–2025))1 concludes that policy documents have not adequately clarified and communicated how to address anti-corruption as a cross-cutting issue. In 2024, an evaluation by Norad of cross-cutting issues in Norwegian development cooperation2 uncovered significant challenges in implementing a cross-cutting approach to these issues.

Norway’s international efforts to prevent and combat corruption aim to promote democracy, the rule of law and sustainable development as well as to enhance national resource mobilisation and ensure that resources are used for the benefit of the population as a whole. Norway aims to take a leading role promoting international norms, standards and operational measures to prevent and combat corruption, tax evasion and illicit capital flows, based on principles of integrity, inclusiveness, transparency and accountability. This has been a central part of the follow-up to the Addis Ababa Action Agenda (2015), and efforts must be intensified in light of the Compromiso de Sevilla, the declaration adopted at the UN’s Fourth International Conference on Financing for Development in 2025.

This document seeks to promote an integrated approach to Norway’s anti-corruption efforts internationally and to clarify what addressing anti-corruption as a cross-cutting issue entails.

This document is intended to:

• provide an introduction to corruption and explain how it hampers Norway’s efforts to achieve its foreign and development policy objectives;
• promote an integrated Norwegian approach to the international fight against corruption, and provide guidelines for how the Ministry of Foreign Affairs, Norad and the embassies can promote anti-corruption
• serve as a common platform to ensure that Norway always communicates consistent positions in bilateral and multilateral contexts, dialogue and alliance building;
• clarify the implications of anti-corruption as a cross-cutting issue in Norwegian development policy and aid.

The document is intended especially for:

• employees of the Ministry of Foreign Affairs
• employees of Norad
• employees at Norwegian diplomatic and consular missions

The document provides guidelines for anti-corruption efforts by the Ministry of Foreign Affairs, Norad and Norway’s missions abroad in international forums, in meetings with representatives from other countries and in development cooperation. It discusses how existing political obligations and guidelines should be put into practice. The document will be updated to reflect changes in political priorities, international standards and practical experience. It is not meant to be exhaustive, but to clarify expectations and promote a systematic approach to anti-corruption efforts.

The Ministry of Foreign Affairs, Norad and the missions should all employ this document in their respective areas of responsibility, either directly in the fight against corruption or through integrating anti-corruption as a cross-cutting issue.

The document is also relevant for other Norwegian ministries, directorates and institutions that are involved in international cooperation related to good governance and combating corruption. Much of the contents will also be relevant for organisations that receive direct anti-corruption support and for authorities in countries that receive Norwegian aid, multilateral organisations and other recipients of Norwegian aid.

Structure and content of the Guildeline

Chapter 2 provides an introduction to corruption and the different forms it may take. It explains what drives corruption and identifies anti-corruption measures that have proven to be effective. This section also provides an overview of the international anti-corruption framework.

Chapter 3 examines corruption in a wider foreign and development policy context. It explains the implications of corruption for inequality, sustainable development, climate change, democracy, human rights and security, and why women and vulnerable groups are particularly affected.

Chapter 4 describes Norway’s four focus areas and provides concrete guidelines for the Ministry of Foreign Affairs, Norad and Norway’s missions abroad on how to integrate anti-corruption measures into their work. Chapter 4.1 outlines the thematic priorities of Norway’s international anti-corruption efforts (more information is provided in appendix 1). It identifies specific measures to prevent corruption, combat impunity and strengthen international cooperation. The text gives Norwegian actors practical advice on promoting Norwegian positions and helping to strengthen implementation of international standards and obligations. Chapter 4.2 describes how anti-corruption is to be integrated as a cross-cutting issue in all Norwegian aid. It provides practical advice on risk assessment and programme design and implementation, and clarifies the responsibilities of various actors in development cooperation and what is expected of them. Chapter 4.3 concerns Norway’s anti-corruption dialogue and coordination with international organisations, like-minded countries and other partners. Chapter 4.4 describes how Norway supports strategic anti-corruption programmes through multilateral partners and civil society.

Appendix 1 gives an overview of key elements of an effective approach to anti-corruption, including Norway’s work on this issue at national level and the the positions it advocates in international forums.

Limits to the scope of this document

The general principle of zero tolerance of corruption and other financial irregularities applies to Norwegian aid. Guidelines relating to zero tolerance and routines for managing Norwegian funding, control and whistleblowing are dealt with in other documents, such as the Main Instructions for Financial Management in the Foreign Service.

Sections 387–389 of the Penal Code prohibit corruption both in Norway and internationally. The Norwegian authorities expect Norwegian companies to be familiar with, and comply with, the UN Guiding Principles on Business and Human Rights and the OECD Guidelines for Multinational Enterprises on Responsible Business Conduct, which address bribery and other forms of corruption. These documents express a clear expectation for companies to carry out due diligence to avoid adverse impacts on people, society and the environment. The Ministry of Trade, Industry and Fisheries is responsible for responsible business conduct and issues guidelines for Norwegian companies.