Tuesday, July 31, 2007

Liberia's Budget Battles: A National Soap Opera

When I arrived in Monrovia, I was informed by Minister Sayeh that the scope of my internship would include a focus on Liberia’s budget. A draft of the national budget had been submitted by the President to the Legislature less than two weeks before I landed in Monrovia. I was just in time, the Minister explained, to work from the end of the Ministry of Finance until it was passed. Stacked against the other issues I had been tasked to work on --- investment policy, debt relief, fiscal policy – the budget seemed, well, a bit dull.

What I did not realize then was that the Minister had just given me a front row seat to the summer’s most explosive drama. In fact, the high profile budget saga that unfolded over the next two months had more sensational plot turns, surprise twists, and preposterous characters than in an entire season of the soap opera “Days of Our Lives.” (Even in its most ridiculous heyday, when Marlena was possessed and Stefano died and came back to life, again.)

My initial read of the draft budget didn’t give even the slightest hint of the ensuing controversy. In fact, during my first tasks of writing talking points for the Cabinet and press releases for the newspapers, I could find nothing but good news to tell. Thanks to robust revenue growth, the draft budget represented a 40% larger pie than the previous year. It was hard to argue with the sectors that stood to benefit from this growth: compared to the previous year, education was to get an additional 44%, health an extra 28%, and public works (and in particular roads!) a needed 59% boost. Civil servants and retirees were designated lucky winners, with well deserved salary increases bound for grossly underpaid government employees. The pot of funds for community development in Liberia’s far flung villages would grow a bit fuller. And more money would be spent on job creation to make a dent into the country’s 85% unemployment rate. Clearly I didn’t need to be a spin doctor to tease out good PR for this budget. Liberia may not have a lot of zeros in its $180 million draft budget, but there is no question that it was aligning all of its pennies with the most important priorities.


Before I could kick up my heels and celebrate, however, the proverbial shit hit the fan. And who was doing the tossing? The Auditor General: the new bully in town, who catapulted overnight from total obscurity to (in)famous national figure. Who is the Auditor General, you might ask? Functionally, the Auditor General is an independent auditor appointed by the President to oversee post-audits of government spending. Reporting directly to the Legislature, the office of the Auditor General is designed broadly to strengthen public financial management and accountability. Normally this role is quiet, behind the scenes, and technical in nature. Normally, of course, but not in this instance. Personally, the Auditor General in Liberia is a relatively young and inexperienced Liberian named John Morlu who returned from many years in the United States to assume his new post. Mr. Morlu’s most distinguishable physical characteristic -- his short stature -- may not have merited psychological analysis, were it not for his decision to wear chunky platform shoes.

Despite his legal mandate to conduct post-audits of spending (translation: after the budget is implemented), Mr. Morlu quickly proved himself trigger happy. After only two months in the country and without ever consulting the Bureau of the Budget or the Finance Ministry, Mr. Morlu authored a dramatic 96 page treatise about the draft budget submitted by the Executive. Translation: a pre-audit. His complaints lodged against the draft budget ranged from the nit picky, such as a lack of page numbers, ironically written in his own page number-less report. To the misguided: criticisms based on misunderstandings that could have easily been cleared up had he simply consulted the government. And finally, to the sensational: allegations of an egregious lack of transparency, disclosure and accountability, and a bold statement that the Legislature’s passage of the budget would constitute a failure of their duty to the Liberian people.

Mr. Morlu unleashed a media frenzy when, without any warning, he brazenly fired off his 96 page treatise along with a confrontational cover letter to the President, the Legislature’s leadership, and the media, all at the same time. Suddenly the rosy front page headlines I had helped craft about the budget were replaced with the damning allegations of the Auditor General. Our team went into rapid response mode. We toiled on the ninth floor of the Finance Ministry until far past my bedtime and drafted the official response for the newspapers and media. The Minsitry chose to toe a sober, fact-based line and clarify the many incorrect accusations put forth by the Auditor General. In the meantime, the President sent a three page letter to the Auditor General that packed a lot more punch and put Mr. Morlu squarely in his place. And left me cheering over the tenacity of the “Iron Lady.” The letter was subsequently leaked to the press and soon became more ammunition in what was rapidly becoming a sensationalized battle, played out on airwaves and newspapers across Liberia.

The real firestorm was still yet to come. In an interview with Voice of America just a few days later, Mr. Morlu declared to the world that the current government was “three times more corrupt than the former interim transitional government of Charles Gyude Bryant that it replaced.” Morlu contended that he had proof based on a “risk analysis of government performance.” Yet this claim is as outrageous as his allegation of corruption: after just eight weeks on the job, the Auditor General had yet to conduct a single audit of either the interim government or the current government, and could not possibly have had valid data to defend such a sweeping assessment.

Mr. Morlu’s statement proved to be the figurative shot heard round the world, or at least around Liberia’s corner of West Africa. Over the next few weeks, the radio and newspapers talked of little else. “Three times more corrupt” was discussed all over Monrovia and everyone seemed to have a view: senators, government officials, men on the street. In the midst of this highly charged controversy, the Legislature announced a public hearing to debate the Auditor General’s concerns with the draft budget and called upon Mr. Morlu, the Budget Director, and (Finance) Minister Sayeh to testify. Another late night was pulled to help the Minister prepare her testimony, including her opening remarks and the responses to questions about the budget and revenue projections.

The atmosphere at the hearings was nothing short of a circus. The stage was actually set more for a circus than a government hearing: two floors of stadium-style seating overlooked the ground floor of the immense conference center, where the Legislature’s leadership and the key speakers sat. Filling one half of the seating on the ground floor were the members of the Legislature. On the other side and above sat the public: a rowdy group of some 200 men whose selective cheering revealed their overwhelming support for the Auditor General. (Or, perhaps, simply an opposition to the Executive). Filling the rest of the space were scores of journalists and armed UN security.

The hearings, dubbed by one newspaper as the “most anticipated” event of the year, commenced with opening remarks by the leadership of the Legislature, followed by statements made by legislators from their peanut gallery. The pomp and circumstance of these statements was striking. 20 journalists with microphones would swarm around a bellowing legislator as he stood shaking his fists, and would then sprint to the next ranting legislator and thrust their microphones in his face. The speeches were rewarded with loud cheers from the crowd, forcing the Speaker to repeatedly pound his gavel to maintain order.

The Auditor General was the first to be called to speak, and speak he did. For over an hour. Two weeks of national controversy served only to egg on Mr. Morlu, and his testimony was even more sensational than his earlier treatise. Minister Sayeh spoke next, and delivered her concise but extremely pointed opening remarks. The highlight: her line, “If the Auditor General needed to be educated about the budget process and public finances in Liberia, all he needed to do was ask.” Boo-ya. The Budget Director picked up where Minister Sayeh left off, delivering such an impassioned and hard-hitting oration that the crowd went wild. Unruly spectators from the stands spilled onto the main floor, angry legislators jumped to their feet yelling, and the futile gavel pounding of the Speaker did nothing to quell the chaos. In a matter of a few frenetic minutes, the hearing was cancelled, Minister Sayeh and other senior officials were evacuated by UN armed guards, and – at the height of absurdity – one of the most senior Cabinet members was accused of threatening a journalist. Which was later twisted to even more far fetched accusations of his threatening the Auditor General himself. The front page of all of the newspapers the next day showed a dejected journalist laying on the ground, a photo of the accused minister looking as if in a mug shot, and highly dramatized accusations that, in the US, would have led to lawsuits.

In the end, the Legislature did pass the budget last week. After two months of debate, one of the only changes that the Legislature prioritized was a very large increase in their own pot of money and personal benefits: far less attention was paid to addressing the concerns raised by the Auditor General, several of which were valid. Lost in the fist fighting was the actual substance behind the controversy: the budget. What the media, the public, and the legislators seemed to focus on were the sparks flying and not the source of the fire, and in the end very little was gained. The opportunity to constructively engage the public and the government on important issues of public financial management and the budget process, and ultimately raise the standards of the budget, was lost entirely. The budget that ultimately passed was not only no better than the draft critiqued by the Auditor General, in my opinion it was worse, with a disproportionately large budget for the Legislature that rivaled the entire education budget and dwarfed the spending in far more crucial sectors.

Liberia’s budget saga raised several lessons. The first is the challenge of effectively communicating facts and engaging the public on policy matters in the Liberian context -- one characterized by widespread illiteracy and very low levels of education. In such an environment, nuance and factual details are too easily trumped by a simple, powerful message like "three times more corrupt" that can easily be communicated, irregardless of its analytical merit. Magnifying this challenge is the weakness of Liberia's media. Far from playing a critical arbitrar in the sensationalized debate, helping readers sift through the hyped accusations, Liberia's newspapers simply played agitator.

A second lesson is the fragility of the reform process. Liberia's government is deeply committed to reforming its governance architecture, and has set off on an ambitious set of simultaneous reform: public financial management, legal and judicial reforms, and more. Troubling is the reality that an imperfect reform in one area can severely impair progress in another, derailing even the best of efforts. For instance, hiring an Auditor General should strengthen accountability and governance. Yet in this case, hiring the wrong Auditor General led to a mammoth distraction from the Government's earnest efforts to tackle corruption, and has resulted in the country losing some of the ground it worked so hard to gain. Likewise, a poorly functioning media can, counterintuitively, hinder efforts to inform the public and communicate facts over hype. And when self-serving Legislators are elected to serve the country, "good" democracy can be antithetical to good governance.

Far from being dull Liberia's budget process was, as it turns out, unforgettable.

46 comments:

Michael said...

Thanks for this stunning, absorbing tale, Molly. Three quick thoughts:

1) Anyone who thinks that development is a simple matter of injecting "Marshall Plans" of money into capital-poor societies needs to read your post. Building social contracts and systems of accountability is hard and slow.

2) Those who who shake their heads at the free-for-all you describe need to remember that today's "developed" countries had this kind of fiasco frequently in their pasts -- such as when a Mississippi senator pulled a gun on his colleague from Missouri on the floor of the senate in 1850, or when our Vice President shot and killed our former Secretary of the Treasury in 1804, or when hopelessly sensationalistic journalism helped pass the criminal 'Sedition Act' of 1798, or many other similar incidents. Our institutions took a long, long time to function as well as they do. Also, not many people know that the first item on the Bill of Rights is *not* what later became the First Amendment, with all that stuff about free speech -- which is actually listed third on the Bill. No, the first item was a proposed amendment to limit congressional pay raises. Somehow, Congress did not see fit to ratify that amendment until 1992 -- 203 years after it was proposed! What do you suppose took them so long? Certainly they were too busy with weighty matters of state.

Both of these together mean that:

3) Development takes a very long time, and it's messy and dirty, with lots of major setbacks. This stuff you describe is par for the course, and there exists no shortcut around it -- the US didn't have one, the French didn't, the Japanese didn't, and the Liberians won't. If and when they do overcome it, it will be through generations of difficult exertions by heroes against villains. Villains are ever-present, but fortunately so are heroes.

Rupert Simons said...

Molly - even though I knew the story already, your thrusting, impassioned prose breathes new life into the plot!

Michael's comment reminds us how anyone who condemns corruption and poor institutions in Africa needs to think through how these demons were defeated in other countries. The UK, for example, suffered from egregious vote-buying and sham budgeting in the 18th and early 19th centuries. Things began to change with the Reform Act of 1832 (extending the franchise) and a massive civil service reform in the 1840s that created the permanent, professional service we know today. But we know that similar reforms have not had worked as well in parts of Africa. After all, Nigeria's civil service is modelled on the British!

For me, the saddest part of the Liberian saga is the behaviour of the free press and financial 'experts' who should know better. Maybe there are 'preconditions' for good governance, just as there are for democratic reform . . . I would submit that an HONEST, as well as free, media is one!

boc said...

Damn, makes my summer of gay pool parties and boys seem quite superficial and empty. Oh whatever, I'm going to the gym. Protein shake anyone?

Kohl said...

I really appreciate the blow-by-blow you've given of the budget process, Molly. I find a lot more drama around it at the DOE than I had expected, also. I probably won't be writing about it (it's mostly intra-agency), at least until I'm no longer working there.

And then there are earmarks.

Emmanuel said...

great blog molly, and thanks for all you guys are doing to put my country back on the path to success.

Anonymous said...

Fantastic writing Molly as always (who else could make a budgeting process, albeit even a dramatic one, riveting?). This seems to have been going on all summer why do we just hear all about it now? I believe you have been holding out on us:) Also someone you might want to talk to about this is Matt Andrews, he would be reaaaallly excited to hear about it I'm sure, it is exactly his cup of tea I think...

Anonymous said...

Great way to stand up in defense of noble ideals like corruption and secret accounts. And I am impressed by your instant and fierce loyalty to these new 'friends' of yours. Please, make fun of platform shoes again, so I won't notice that the proposed budget failed to mention any revenues from diamonds ('gee, does Liberia produce those?') or other natural resources. Picky picky, we forgot to mention the majority of the nation's revenues! You seem to suggest that wholesale kleptocracy is not so bad if it leaves a few more crumbs for the people this year than last ('revenue growth' indeed!).

Apparently, Harvard spells naive. Or perhaps you are knowingly exporting the deny/delay/attack school of American politics to other 'less fortunate' nations. You certainly seem the eager participant.

Anonymous said...

Molly,

Your blog rocks. I've loved following your travels through Liberia this summer. I'm headed to Africa this coming spring and would love to grab you for coffee when you return to Cambridge. When are you returning?

best,
jane (friend of Siri Trang's)

JFK THOUGHTS AND PERSPECTIVES said...

Molly, I really feel sorry for you. I know how excited you were about helping Liberia but you missed out on importany historical facts which, in essence, rendered all you have said to be laugable by any Liberian reading your blog. You are so lost and I can only hope that you be found one of these days.

In LIberia, never nefore have the 'common people' have a friend in government like John Morlu. He really stood up and spoke truth to the power-that-be for the first time.

Molly, you are young and have no idea how corrupt those people are. You saw the budget and you thought it was the that one could ever put together but you were dead wrong. 40% increase in revenue sounds great but the people never see those monies are spent. Our people continue to remain poor but some from Harvard will not understand it. This is why the new generation of African scholars are demanding that Africa's development be left with Africans who understand the culture, gimmicks, deceptions, and the people of the Continents.

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iP7QIr Thanks to author.

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Anonymous said...

Nice Article.

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Mike B said...

Wow, what a great story! It makes me wish we had a bit more passion in our legislature. More people would watch C-Span if there was more cheering and fist-banging, and maybe some end-zone dances after "impassioned and hard-hitting orations." We just get the mis-information here, without the entertainment.

Anonymous said...

Thanks for the article. Though your views in part are bias, the conclusions however were objective. Missing from your article are concrete measures the government has to implement to achieve sound financial management and the transparency needed in the country's budget process.

I would also add that the integrity of officials instituting the “so-called” reforms is highly suspect in the entire process, because those prorogating reforms are paid by the International Monetary Fund, IMF and implementing its policy, not Liberia's. Therefore, what one see here is government incompetence; As long as these ineptitudes promotes IMF interests, the government will not face any criticism from the international community.

Anonymous said...

Congratulations on a good job in a tough environment - but I wonder if your understandable passion for such a wonderful place, with fantastic people, has given you tunnel vision?

I agree Mr Morlu may have an ago the size of Monrovia. However, after years of working amongst smoke and mirrors, and having concrete evidence of the unbelievable way some people operate, I personally think there are layers of corruption in Liberia which will not be uncovered until a bomb is thrown into the room by someone like him. Members of the World Bank in Monrovia also believe the GOL to be highly corrupt.

Morlu may be irritating, but he is incredibly brave, and you should ask yourself why he is risking a comfortable life and even his own existence to uncover some of this deeply entrenched behaviour.

It will be interesting to see the conclusion of a real dig into the GOL, the reaction of its key players (you will perhaps have noticed Ellen is not too keen on being held to account.......) and the eventual whereabouts of certain monies.

Anonymous said...

Molly,I am a Liberian and like jfkollie wrote I am laughing hysterically as I pen this.
Do you know how much money your boss was being paid?
How much Johnson-Sirleaf makes?
In a country of people with high level of poverty these people are like high powered wall st executives.
By the way John Morlu is a NATIONAL HERO.

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