4 Norway’s international anti-corruption efforts

The international anti-corruption framework is under pressure. As a result of rising authoritarian tendencies in many countries, lower priority is being given to the fight against corruption or action is used selectively to harm political opponents. The UN Convention against Corruption (UNCAC) is nearly universal, but the obligations that go with it are often inadequately implemented, and many states only fulfil their obligations to a limited degree. Fighting corruption requires genuine political will, which in practice is often lacking because government authorities may have an economic or political interest in preserving systems that enable corruption.

Civil society actors play a key role in keeping a check on government authorities but often encounter significant obstacles to their work, including inadequate access to public information and the pressure and persecution they face. Moreover, while corruption is increasingly transnational in character, effective international cooperation is complicated by weak national legislation and insufficient coordination between countries.

Transnational organised crime also utilises corruption as a tool to facilitate illegal activities and undermine states’ capacity to enforce laws and protect public resources. This underscores the need for an integrated approach that links anti-corruption efforts more closely to the fight against organised crime.

Norway is actively engaged in international efforts to prevent and fight corruption as well as to strengthen institutions, actors and systems that are intended to hold perpetrators accountable. Norway’s engagement focuses on the following priority areas:

1. protecting and strengthening the multilateral international anti-corruption rules and standards;
2. integrating anti-corruption as a cross-cutting issue in Norwegian aid and development policy;
3. strengthening anti-corruption dialogue and cooperation with other countries and partners;
4. supporting strategic anti-corruption programmes and projects

4.1 Protecting and strengthening the multilateral international anti-corruption rules and standards

The positions Norway takes in international forums must be anchored in national policy, which itself must be consistent with international obligations. Norway will fulfil its international obligations actively and effectively.

As a driving force in the fight against corruption, Norway aims to take a leading role in ensuring the effective implementation and further development of existing international norms, standards and operational measures for preventing and combating corruption. Norway supports the utilisation of a broad knowledge base for further developing international standards.

It is vital to ensure policy coherence and an integrated approach in combating corruption and other forms of economic crime, both nationally and internationally. Regardless of the forum, Norway’s positions must be clear, consistent and recognisable.

Norway will promote an integrated approach to anti-corruption work, encompassing prevention, criminalisation, detection, reporting, investigation, prosecution, conviction, proportionate sanctions and penalties, as well as tracing, freezing, confiscation, and return of illicitly acquired assets to their rightful owners or countries.

4.1.1 Strengthening efforts to prevent corruption (appendix 1, items 1–9)

In its international efforts to prevent corruption, Norway focuses particularly on the following areas:

• Greater knowledge and awareness of the consequences of corruption
• enhanced integrity and higher ethical standards in public administration;
• increased transparency, integrity and inclusion in public decision-making processes;
• corruption-free public procurement;
• increased transparency in public financial management;
• transparency of ownership and ownership structures, including the establishment of beneficial ownership registries;
• increased transparency around the funding of political parties and candidates;
• a corruption-free business sector and corruption prevention in the private sector;
• effective systems to prevent money laundering.

4.1.2 Combating impunity (appendix 1, items 10–16)

To enhance the effectiveness of enforcement and combat impunity, Norway will highlight the following in particular:

• effective enforcement of corruption legislation;
• robust, independent anti-corruption institutions, prosecuting authorities and courts;
• holding professional facilitators accountable;
• secure whistleblowing systems and effective protection of whistleblowers;
• safe conditions for investigative journalism, independent media that expose corruption and active participation by civil society in national, international and multilateral anti-corruption efforts;
• less secrecy and fewer safe havens for corrupt actors and illicitly acquired assets;
• analysing and establishing regional or international mechanisms to counter impunity when national legal systems do not work.

4.1.3 Strengthening international cooperation (appendix 1, items 17–19)

To strengthen international cooperation in the fight against corruption, Norway will highlight the following in particular:

• making better use of the global anti-corruption framework, including by supporting the capacity of developing countries to participate in international anti-corruption efforts and multilateral negotiations;
• effective legal cooperation between countries;
• effective international cooperation to trace, confiscate and recover the proceeds of corruption.

4.2 Integrating anti-corruption as a cross-cutting issue in Norwegian aid and development policy

In 2024, Norwegian aid totalled NOK 58.6 billion. Administering these funds requires a high level of integrity and control. Corruption related to aid funding can damage both confidence in Norwegian development cooperation and actual aid effectiveness. In addition to undermining aid results, such irregularities may exacerbate existing inequalities and worsen the abuse of power in recipient countries – the opposite of what aid is intended to achieve (see chapter 3 for more detail). Anti-corruption has therefore been designated a cross-cutting issue in Norwegian development policy and aid, as set out in the white paper Common Responsibility for Common Future (Meld. St. 24 (2016–2017)). The four cross-cutting issues to be addressed in all Norwegian development aid, regardless of sector and form of cooperation, are:

• human rights, with a particular focus on participation, accountability and non-discrimination;
• women’s rights and gender equality;
• climate and environment;
• anti-corruption.

Integrating anti-corruption as a cross-cutting issue underscores that the fight against corruption is not an isolated effort but an essential basis for achieving development policy goals.

It is possible to prevent, detect and tackle corruption effectively through broad-based risk analysis and the use of specific risk-reduction measures. A risk analysis seeks to identify institutional vulnerabilities and other internal project risks, including the possibility that Norwegian funding will not be employed as intended. A good risk analysis will also consider external risks and vulnerabilities associated with policies, ownership and power relationships that could result in a project not achieving its aims.

Anti-corruption efforts are to be integrated by implementing specific measures to prevent or reduce corruption risk on the basis of the findings of a broad risk analysis.

All development aid projects funded by Norway must be systematically evaluated with an eye to both i) the corruption risk associated with a particular project, meaning the risk that corruption or other financial irregularities could affect the extent to which the project achieves its objectives, and ii) whether the Norwegian aid increases the risk of corruption in the recipient country or sector (the ‘Do no harm’ principle).

When a corruption risk associated with Norwegian support is identified, risk-reduction measures must be incorporated into the planning documents and any discrepancies are to be addressed and reported on throughout the cooperation.

When there is a potential to achieve substantial positive effects in a recipient country or sector, or when anti-corruption activities may substantially improve the performance of a project, it is the general rule that anti-corruption elements must be incorporated into the design of the project (the ‘Do good’ principle). In such cases, specific anti-corruption objectives are to be formulated.

Within priority areas and in connection with major agreements, it may be appropriate to propose anti-corruption measures to ensure transparency, participation, integrity and accountability. One approach is to support targeted measures in national reform processes, such as improving public sector governance and public financial management. Examples include enhancing transparency in ownership and public procurement, implementing salary reforms, and promoting compliance with norms for responsible business conduct in the private sector.

Responsibility for establishing good risk management practices and treating anti-corruption as a cross-cutting issue resides with the aid recipient. Administrators and senior officials in the Foreign Ministry, Norad and the embassies have a responsibility to evaluate whether an aid recipient’s risk management system can adequately ensure that a project achieves its objectives and also avoids harm to the fabric of society. The aim is to lower corruption risk to an acceptable level. The implementation of anti-corruption activities that may effectively improve the performance of a project or have positive impacts on society in general should also be considered. These evaluations should build on the grant manager’s contextual analysis and consider Norwegian political priorities, the project’s significance and scope, and the likelihood and consequences of corruption risk.

Cooperation partners often conduct their own analyses (including of political economy, power and interests) and issue reports that are relevant when assessing risk in a sector or a country. Aid authorities in other countries, the IMF and the World Bank issue similar analyses. These sources of information could be used to a far greater degree than at present in project development, and particularly in dialogue with government authorities and other relevant partners.

A solid analytical foundation is particularly important when considering cooperation in countries where Norway does not have an embassy, in countries and sectors where our knowledge is limited, in conflict-affected countries, in countries where a proposed project would involve new partners and in cooperation relating to purchasing, licences and agreements and/or to sectors where corruption risk is considered high. Embassy reporting is an important source of information and must be regarded in combination with active dialogue with authorities, cooperation partners and other relevant actors.

4.3 Strengthening anti-corruption dialogue and cooperation with other countries and partners

One aim of Norwegian development aid is to support efforts to build strong institutions in developing countries. This may include technical assistance and guidance for building systems and skills, training and instruction, developing new knowledge and establishing meeting places for learning and the exchange of experience and knowledge. An important aspect of this work is helping to maintain the political will to introduce and carry out needed measures. Support for change processes requires transparency, participation and access to information.

Anti-corruption must be actively promoted in political dialogue

The question of whether to raise the issues of corruption problems and anti-corruption should be actively considered in dialogue at all levels, from bilateral meetings at political or senior official level to contact between embassies and host country authorities and Norad’s thematic cooperation. Since almost all countries are parties to the UNCAC, political dialogue can start by focusing on shared convention obligations. From there, it is useful to discuss recommendations from country reviews or explore how the country may need technical assistance to meet its obligations. Another relevant topic is a country’s compliance with the standards and associated evaluations issued by the Financial Action Task Force (FATF). Norway is one of the largest contributors to UN anti-corruption efforts, and supports measures such as anti-corruption guidance and training through the UN Office on Drugs and Crime (UNODC). Dialogue may be a suitable approach in the period before and after conferences of states parties to the UNCAC and in connection with large-scale initiatives or reforms related to economic growth, increased investment and improved public services. A positive starting point for the conversation can be to use examples of situations where greater transparency and a stronger rule of law have led to economic growth. It may be useful and natural to mention special challenges related to a particular sector or topic – such as transparency in public procurement, police affairs, customs, taxation or natural resources management. A country’s ranking in democracy, governance and corruption indexes can also be raised in dialogue, but may be politically sensitive.

Cooperating with like-minded partners to maximise effect

Whether we are dealing with UN negotiations on more binding anti-corruption norms and standards or with a single country’s implementation of transparency measures, the odds of success improve when we cooperate with like-minded actors. The selection of cooperation partners – both countries and civil society organisations – will vary depending on context and aim. But Norway must always be a consistent and reliable partner in the fight against corruption and for transparency and accountability.

The role of Norway’s embassies in alliance-building is important, particularly in supporting implementation of UNCAC and other relevant conventions by developing countries, as mentioned above. Better utilisation of country assessments, follow-up reports and international meetings and conferences can expand opportunities for cooperation on important but complex topics. The document UNCAC in a Nutshell 20218 provides practical guidance on how embassies can use the convention. Embassies should identify key actors at country level, then consider cooperation with them on anti-corruption, and should support actors that demonstrate a willingness to implement anti-corruption reforms. Similarly, it is important to identify and support governments that are willing to take real action to prevent and combat corruption. A number of Norwegian embassies have entered into partnerships with national and regional actors that are actively promoting transparency and accountability. These partners possess valuable knowledge and experience and provide deeper insights into new trends and challenges at country level.

Norway’s role at the UN, World Bank and IMF: a driving force in anti-corruption work

There have been significant changes in the aid sector over time. Norwegian aid is channelled primarily via the UN system, global funds, the World Bank and other international financial institutions as well as civil society. A significant amount is allocated to humanitarian efforts. Only a small proportion is provided directly to the authorities in developing countries.

Good governance, transparency and the fight against corruption are key topics in dialogue and cooperation with multilateral organisations. Norway requires these organisations to have systems to prevent, detect and address financial and other irregularities effectively. Norway is represented on the boards of various multilateral organisations and closely follows their efforts to prevent and address corruption. The boards of the multilateral development banks receive regular information about the banks’ procedures for monitoring and addressing corruption risk. Norway is also working actively through the ongoing policy dialogue with multilateral organisations and in replenishment negotiations to strengthen the anti-corruption focus of the organisations both internally and externally. Norway will be an advocate for institutions such as the UN, World Bank and IMF to give higher priority to the anti-corruption agenda in their dialogue with countries.

Civil society, academia and the media are instrumental in maintaining the political will to tackle corruption and play a major role in preventing and combating corruption. Norway cooperates closely with key international and national civil society organisations that work globally and in individual countries to support transparency and combat corruption.

Research and analysis are essential for developing knowledge and understanding of corruption, including its prevalence, manifestations and consequences, and for designing effective anti-corruption measures. Knowledge-based advocacy work is crucial to effect change, especially in the face of strong economic interests that defend the status quo.

Within the business sector, some actors both initiate and take part in corruption, but businesses may also be exposed to corrupt activities that distort markets. Many other companies stand out as good examples, having implemented clearly defined internal measures and responsible supplier management systems to prevent and combat corruption. Some actors are innovators, developing technical solutions for anti-corruption work. On the other hand, there are professional facilitators, individuals and companies that aid and abet corruption and money laundering by providing legal, financial and other services that enable such criminal activity. Bolstering the collective effort against corruption requires dialogue and cooperation with companies and industry organisations.

4.4 Supporting strategic anti-corruption programmes and projects

An integrated approach to anti-corruption work requires measures to prevent corruption, detect violations of law and ensure consistent law enforcement. Also necessary are independent control organs, strong investigative and prosecution authorities, open access to public information, a free press and an active civil society. These elements combined form the basis of robust, long-term anti-corruption work.

Norway supports strategically important anti-corruption programmes and projects as one means of achieving the broader priorities of Norwegian foreign and development policy. The framework of Norwegian support for anti-corruption activities, the composition of partnerships and the strategy have developed gradually since publication of Official Norwegian Report 2009: 19 Tax havens and development9 and subsequent white papers.

Anti-corruption support from Norway to national authorities, media outlets, academia, multilateral organisations and civil society is designed to influence processes at international, regional and national levels.

All support must safeguard and respect human rights and fundamental principles of the rule of law. In its anti-corruption efforts, Norway works actively to integrate a gender perspective, promote gender equality and strengthen women’s rights.

Norway aims to play a leading role in international efforts to promote financial transparency, accountability and integrity and to combat illicit financial flows, money laundering, tax evasion and other forms of corruption.

In addition to supporting dedicated anti-corruption programmes, Norway contributes indirectly to the fight against corruption by providing support in other areas: public financial management, illicit financial flows, economic crime, tax systems, customs, national audit institutions, natural resources management in the oil, gas and minerals sector, investigative journalism and statistics. This support will have positive indirect effects that may help to reduce corruption.

Programmes in specific sectors – including programmes in Norad’s Knowledge Bank such as Fish for Development, Oceans for Development, Tax for Development and Global Health – include elements that can reduce corruption. Some embassies also engage in anti-corruption activities.

Anti-corruption efforts under the auspices of the Foreign Ministry must be coordinated with and support other Norwegian priorities defined by the Ministry of Climate and Environment, the Ministry of Justice and Public Security and the Ministry of Finance in areas such as money laundering, environmental crime and transnational organised crime. Norway’s overall contributions and its knowledge base will strengthen its participation and position in processes within the UN, OECD, G20 and FATF, among others.

Illustration: iStock/wildpixel

Effective partnerships

Norway cooperates with the UN Office on Drugs and Crime (UNODC) to support developing countries’ efforts to implement the UN Convention against Corruption (UNCAC). Through this cooperation, developing countries receive technical assistance including assistance in meeting their convention obligations, guidance and training and assistance in developing of knowledge products and tools.

Norway works closely with UNODC, Open Contracting Partnership, Open Ownership and the Platform to Protect Whistleblowers in Africa on transparency in public procurement, beneficial ownership transparency and protection of whistleblowers.

Through the Corruption Hunter Network, Norway brings together prosecuting authorities from approximately 20 countries and institutions to discuss prevention, investigation, prosecution and asset recovery. The Corruption Hunter Network is also an important meeting place for identifying opportunities, challenges and needs for technical assistance, and for sharing new knowledge at the national, regional and global levels.

Norwegian support for the International Centre for Asset Recovery (ICAR) is used to provide technical assistance and guidance in connection with investigations of specific grand corruption cases involving government officials (including in Namibia, Malawi, Mozambique, South Africa, Italy, Nigeria, Zambia, Kenya, Peru, Costa Rica, Brazil, Senegal). Support provided to the World Bank’s Stolen Asset Recovery Initiative (StAR) is especially important in cross-border cooperation. Developing countries are offered technical assistance through UNODC and the Basel Institute on Governance/ICAR in cases where it is considered necessary and important for corruption prevention, investigation, and tracing and recovery of stolen assets.

Norway supports anti-corruption programmes at the World Customs Organization (WCO), the International Consortium of Investigative Journalists (ICIJ) and the U4 Anti-Corruption Resource Centre in Bergen, which gathers information and knowledge and makes it accessible as a public good. U4 also arranges courses and training activities for donors and partners alike. Cooperation with the UNCAC Coalition and U4 has been used actively to mobilise engagement in civil society and in other countries on vital issues.

The organisations that Norway supports possess valuable expertise and play a key role in developing international standards. They also use their technical expertise to strengthen national capacity in countries that are seeking to fight corruption more effectively.

Norwegian public-sector actors work through Norad’s Knowledge Bank to provide functions that are crucial to good governance and the fight against corruption, and their work in developing countries boosts transparency, accountability, participation and integrity.

On the basis of the aims presented in chapter 4.1 of this document, Norway provides developing countries with partnerships and access to technical assistance, tools and networks that are crucial in preventing and combating corruption. Norway also assists countries where institutions are weak and that are facing major challenges to participate in debate, dialogue and negotiations that may have far-reaching consequences for developing countries.