national program on accountability, transparency, and fighting corruption - 2008-12

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National Program on Accountability,

Transparency and Fighting Corruption 2008-2012

Table of Contents

I. Framework of Reference

Message from the Minister of Public Administration

Contents

Message from the Mexican President

II. Context, Background and Priorities

III. NDP Objectives and 2030 Goals to which the Program contributes

IV. Objectives, Indicators and Goals

V. Strategies and Lines of Action

VI. Evaluation and Monitoring System

Glossary



NATIONAL PROGRAM ON

ACCOUNTABILITY, TRANSPARENCY

AND FIGHTING CORRUPTION

2008-2012



N a t i o n a l P r o g r a m o n A c c o u n t a b i l i t y , Tr a n s p a r e n c y a n d F i g h t i n g C o r r u p t i o n 2 0 0 8 - 2 0 1 2 | 3

Message from Mexico’s President

Message from the MexicanPresident

At the beginning o my term in oce, and with theparticipation o numerous Mexicans, we initiateda prospective exercise to dene the country wewish to build. This collective eort led to a pro-

ject entitled Visión México 2030, which has beco-me the point o reerence or our current actions.

This project refects the aspirations o Mexicans

to see their government and those in governmentrespond to their demands with eciency andtransparency, and act ethically and with social res-ponsibility in the task o promoting the country’sdevelopment and the well-being o all Mexicans.

Today, society demands governments that aremore open to scrutiny and evaluation. Society de-mands governments that are sensitive, maintaina close relationship with the people, and bringcondence to citizens. In order to meet these de-mands, a change o attitude is vital. It is necessaryto move rom a culture o corruption to a cultureo legality, transparency and honesty. It is neces-sary or public ocials to not only assume their

responsibility to comply with and enorce the law,but also to act together with citizens to preventand eradicate corruption in its many orms.

The 2008-2012 National Program on Accoun-tability, Transparency and Fighting Corruptionpresented here, together with other sector-based

and special programs, have been developed on thebasis o Visión México 2030 and the National De-velopment Plan. These programs also take into ac-count the results rom a broad-based consultationwith society’s stakeholders, who have contribu-ted elements linked to diagnostic assessment andaction.

This Program expresses the objectives, strategiesand lines o action aimed at consolidating a Statepolicy that strengthens good practices in PublicAdministration. This will be accomplished with agovernance ocus that is more open, honest andtransparent, and with a renewed commitment toaccountability.

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Message from Mexico’s President

4

This Program will also contribute to streng-thening a culture o adherence to the law, andcreating a public ethical system that establishesvalues and principles or guiding the actions o public ocials and the actions o society in itsinteraction with institutions.

With the objective o achieving better results inthe ght against corruption, the Program propo-ses new schemes or inter-institutional coordina-tion in the implementation o transversal publicpolicies, with special emphasis on public securityinstitutions.

In summary, we will continue to promote hones-

ty, transparency, clarity, eciency, and the appro-priate use o public resources. My administrationrearms its position o zero tolerance or corrup-tion. This is what I demand rom our public o-cials, and this is what I am oering to my ellowMexicans. As other programs recently released,this document clearly refects the ideas o a so-ciety ocused on moving orward by strengtheningDemocratic Governability and Sustainable HumanDevelopment—to build a country in which all o us can improve our lives.

Felipe Calderón Hinojosa

President of Mexico

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Mexico’s Public Administration has an immensedebt with the country’s citizens.

The administrative model ollowed or decadesand the excessive concentration o bureaucraticpower led to increasingly decient attention tocitizens and to society’s limited participation in

public aairs.

Weaknesses in the country’s regulatory, organi-zational and institutional rameworks opened theway or corruption and impunity, undermining therule o law, the government’s credibility and citi-zens’ condence in institutions.

Today, the challenge acing the world’s States isto move rom democracies in which society’s par-ticipation is limited to electing the individuals whowill govern them, to a democracy o citizens, inwhich institutions guarantee the ull exercise o their rights. This broader vision o democracy in-volves redening the act o governing, with the

recognition that the complexity o problems andchallenges currently aced by society demandsnew orms o action and interaction between so-ciety and government.

This approach to governance—also reerred to asdemocratic governability—establishes and assures

new orms o designing public policies and gover-nance practices based on co-responsibility and parti-cipation by government and society.

A democratic government seeks to consolidatethe construction o public governance based onthe rule o law, on principles o honesty, transpa-rency, responsibility and eciency, with accoun-tability and an ongoing commitment to be subjectto society’s scrutiny and evaluation.

During the last decade, Mexico has experiencedan intense process o transormation and chan-ge in government administration. This is evidentin administrative decentralization, measurement

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and evaluation o public governance, proessio-nalization o public administration, and renewedcommitments to detect and combat corrupt prac-tices. The commitment and challenge or PresidentFelipe Calderón’s administration is to increase thetransparency o administrative governance and toconsolidate a new culture o accountability or the

benet o society.

For this reason, some o the priorities we haveidentied are to consolidate a new relationshipbetween government and citizens, to enorce thelaw without exceptions, and to require ull com-pliance with the principles o integrity, transpa-rency and accountability. This is the way we will

conront corruption.

In addition, in order to successully engage in theght against corruption, we need to maintain aclose relationship and co-responsibility betweenederal, state and municipal authorities. When anillegal action takes place, citizens do not ocus onwhether it alls under ederal or local jurisdiction,but rather they simply expect a quick responserom authorities.

It is also important to point out that citizens tendto understand corruption as an abuse o powerby public ocials or their own personal gain. Itis thereore vital to acilitate greater coordination

between entities and institutions in the ederalexecutive branch o government and the variousentities at the local level, in order to prevent, era-dicate and sanction the illegal practices and impu-nity that are so damaging to society.

It is also necessary to promote legislative reorms

aimed at harmonizing and strengthening the legalinstruments necessary or putting an end to impu-nity, since citizens are no longer willing to watchas individuals linked to corruption easily evade

justice.

It is important to mention that at the internatio-nal level Mexico has ratied the commitment to

combat corruption and bribery through variousmechanisms or collaboration and cooperation inorums and conventions. For example, Mexico hasactively participated in the Inter-American Con-vention against Corruption, o the Organizationo American States (OAS); the Convention onCombating Bribery o Foreign Public Ocials inInternational Business Transactions, o the Orga-nization or Economic Cooperation and Develop-ment (OECD); and the United Nations ConventionAgainst Corruption (UNCAC).

In this context, our country needs to move roma culture o corruption to a culture o legality inwhich citizens and public ocials not only assume

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the responsibility to enorce and comply with thelaw in all their actions, but also prevent, reject, de-nounce and sanction illegal behaviors. It is vitallyimportant that citizens and public ocials developa culture in which the cost o granting or receivingan illegal avor is higher than any benet expectedrom this behavior; a culture in which the likelihood

that illegal behavior will be met with punishmentis perceived as high; and a culture in which corruptpractices are viewed as socially undesirable.

We are aware o the need to expand opportuni-ties within the ederal government or citizenparticipation, to acilitate transparency and ac-countability in the dierent areas o government

administration. It is also important to promote andgenerate mechanisms or society’s evaluation andmonitoring o the commitments, actions and pro-grams established within the Federal Public Admi-nistration. In short, we are pleased that citizensare those who are demanding accountability.

This is because when citizens become involved in go-vernment activities, the evolving social dynamics serveto improve government’s perormance, and to assurethe establishment o instruments or the transparencyand accountability o those in the position o governing.

The result is eective prevention o corruption. Thus,good governance is a consequence o an institutionaldesign in which society plays a undamental role.

Today, Mexican society is more insistently deman-ding that the government be more open to citi-zens’ scrutiny and evaluation. It is demanding asensitive government that knows how to listen,is close to the people and merits condence—in other words, an honest, ecient, transparentgovernment.

Along these lines, the Ministry o Public Adminis-tration has been carrying out a proound internaltransormation that will make it possible to streng-then and reorient the authority it has or control,evaluation and administrative development o e-deral government oces and entities. The goal isto consolidate Public Administration in such a way

as to generate the people’s total condence, andto assure that public ocials have a genuine com-mitment to provide service to society.

What I have described here is a special challengethat the Federal Public Administration is requiredto assume, through The 2008-2012 NationalNationalProgram on Accountability, Transpa-rency and Fighting Corruption.

This Program, together with actions in the SpecialProgram or Improvement in Governance in Fede-ral Public Administration, will be the driving or-ce or actions in the areas o citizen participation,transparency, accountability and legality, with the

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aim o establishing values and principles or gui-ding the actions o public ocials and society inthe ght against corruption.

The six strategic objectives that are proposed inthe Program and that contribute toward an alig-nment with the institutional areas dened in the

2007-2012 National Development Plan, are theollowing:

1. Consolidate a State policy in the areas o in-ormation, transparency and accountability.

2. Strengthen oversight o public resources andimprove internal control in the Federal Public

Administration, in order to contribute to insti-tutions’ eectiveness and perormance.

3. Contribute to the development o a culturecharacterized by adherence to the law, ethicsand public responsibility.

4. Institutionalize mechanisms or citizen par-ticipation and networking in the ght againstcorruption and improvement in transparencyand legality.

5. Establish mechanisms or coordinating ac-tions to combat corruption in the Federal Pu-blic Administration.

6. Combat corruption in ederal governmentinstitutions that participate in the prevention,investigation and prosecution o crimes, as wellas in carrying out criminal sanctions.

What we are seeking with the implementation o this Program is to strengthen practices and values

in public administration, with an approach that ismore open to society’s participation, more honestand transparent, and with new dedication to ac-countability or actions and or the commitmentsgenerated with citizens. Another objective is towork toward better coordination among the en-tities responsible or ghting corruption, particu-larly those in charge o public security.

This Program is an expression o the rm com-mitment by President Felipe Calderón’s adminis-tration to prevent and combat corruption. Thecitizens o Mexico can be sure the governmentwill maintain Zero Tolerance to illegal activities.

In this government no exceptions will be madewhen it comes to enorcing the law. I public o-cials engage in illegal behavior, they will be punishedin accordance with the legal ramework regulatingactions by the Federal Public Administration.

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In this context the Program establishes a compre-hensive strategy in which transparency, accounta-bility, citizen participation and a culture o legalityare the elements interwoven in a renewed publicpolicy or ghting corruption, aimed at citizens’well-being and security.

Salvador Vega CasillasMinister of Public Administration

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N a t i o n a l P r o g r a m o n A c c o u n t a b i l i t y , Tr a n s p a r e n c y a n d F i g h t i n g C o r r u p t i o n 2 0 0 8 - 2 0 1 2 | 1 0

Contents

ContentsChapter I.

Frame o Reerence 11

Chapter II.Context, Background and Priorities 14

Chapter III.National Development Plan (NDP) Objectivesand 2030 Goals to which the Program contributes 23

Chapter IV.Objectives, Indicators and Goals 30

Chapter V.Strategies and Lines o Action 51

Chapter VI.Evaluation and Monitoring System 66

Glossary 69

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Chapter I. Framework of Reference

promoting adherence to the law, and gaining thesupport and condence o the citizenry. All o thiswill contribute to the stability, development andwell-being o Mexican society.

With this in mind, the Ministry, through the Inter-Secretarial Commission or Transparency and the

Fight Against Corruption in the Federal Public Ad-ministration, will coordinate and evaluate actionswith Federal Public Administration oces and theFederal Attorney General’s Oce, in order to assurethat the objectives established in the 2007-2012National Development Plan are attained.

Thus, in the context o objectives in public policy

areas in the 2007-2012 National DevelopmentPlan, the Ministry o Public Administration proposesthe 2008-2012 National Program on Accounta-bility, Transparency and Fighting Corruption, asa special, obligatory program or the Federal PublicAdministration. The purpose o the program is togenerate a social culture o accountability, adheren-ce to the law, and combating corruption, based ona transormation o the ederal government’s own

processes and a redenition o the relationship bet-ween State and society.

The active participation o all Federal Public Ad-ministration entities and oces is undamental toguaranteeing proper attention to citizens, as wellas the ecient, transparent use o public resour-ces. These are the primary connections betweenthe Ministry o Public Administration and otherederal government institutions.

Recuperating the prestige o public administration andState institutions is an urgent need that must receive im-mediate attention. Citizens’ condence and active par-ticipation in public aairs is undamental to developingour institutions and strengthening our democracy.

Lastly, the Program is contributing toward ull

compliance with commitments adopted by theederal government through the National Agre-ement or Security, Justice and Legality1 in theght against corruption. Specically, the Ministryo Public Administration makes a commitment to:

• With civil society participation, strengthen

the system or whistle-blowing on corruptionand improper actions o public ofcials wor-

king in the ederal government in the areaso security and justice (Commitment IX).

1. This Agreement was signed on August 21, 2008 and published in the Ocial Gazette (Diario Ocial de la Federación) dayslater on August 25, as a mechanism established among the three government branches in the Mexican State, together withprivate and social sectors, with the aim that each develops, within its authority and jurisdiction, specic actions in avor osecurity, justice and legality, based on shared short, medium and long-term objectives.

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Chapter I. Framework of Reference

Objective: Include mechanisms or citizen ob-servation in the processes or receiving and in-vestigating inormation rom whistle-blowers,and carrying out sanction procedures.

• Guarantee accountability in the use of re-sources or public security programs (Com-

mitment XXIV).

Objective: Disseminate inormation regardingindicators or governance and measurement o expenditures and their operational eciency.

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Chapter II. Context, Background and Priorities

Chapter II.Context, Background

and PrioritiesMeasures o Corruption and

Transparency

There are a number o dierent indexes o govern-ment corruption and transparency, and especially

worth mentioning is the Corruption PerceptionsIndex (CPI)2 developed by Transparency Interna-tional. In 2008 Mexico’s score on the CPI was 3.6(on a scale rom 0 to 10, in which “0” is highly

corrupt and “10” is highly clean). Although thisresult is slightly above the score o 3.5 obtainedin 2007, it continues to place our country at thesame score range as ten years ago.

In the World Bank Institute’s Corruption ControlIndex3, Mexico obtained a score o 48.8 in 2007(on a scale rom 0 to 100, in which the higher thescore, the lower the levels o corruption). This

2. The Corruption Perceptions Index (CPI) measures the perceived levels o corruption among unctionaries and politicians.It is constructed with inormation obtained rom experts and rom surveys conducted by selected independent, accreditedinstitutions. Scoring is based on a scale o 0 to 10, with “0” as highly corrupt and “10” as highly clean.

3. This indicator is expressed in percentages and is calculated by weighing multiple variables obtained in diverse studies, inclu-ding surveys o the general population, surveys o specic sectors o the population, analysis by experts, reports rom non-governmental organizations, country risk studies, and other studies conducted by independent, accredited organizations.According to this study, i a country’s aggregate indicator is in the 75 to 100 percent range, it ranks very well; i the indicatoris in the 50 to 74 percent range, it ranks well; in the range between 25 and 49 percent, it ranks poorly; and in the rangebetween 0 and 24 percent, it ranks very poorly.

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score signies a 10.4% increase in comparison tothe score o 44.2 obtained in 2006. Nevertheless,these scores continue to be at the low range o thescale. The highest score received by our countryon this indicator was 53.4 in 2003.

On our occasions the Mexican chapter o Trans-

parency International has calculated an index onthe corruption aecting citizens when accessing35 public services provided by the three levels o government4. The results rom the National Sur-vey on Corruption and Good Governance conduc-ted by Transparency Mexico in 2007 indicate thata bribe was paid to obtain a service in 10% o thecases, signiying a marginal reduction in corruption

in comparison to 10.1% registered in 2005.

The majority o the 35 services included in thestudy are provided by the three levels o gover-nment, however it not possible to determine theexact proportion corresponding to each level.

Five o the 35 services surveyed correspond ex-clusively to the ederal level o government, and abribe was paid in an average o 9% o the cases in2007, indicating one percentage point below thenational average or that year. In addition, thereare another 12 services provided by both ederaland local government authorities; however it is

not possible to precisely evaluate each o theseservices.

Transparency Mexico’s National Survey on Co-rruption and Good Governance also includes amodule with questions on perceptions and atti-tudes in relation to this phenomenon. The re-sults are particularly revealing in relation to the

culture o legality in our society. According tothis study, the majority o those surveyed placea great deal o importance on the law, howevertheir willingness to break the law is also veryhigh. In 2001, 33.2% agreed with this state-ment: “Breaking the law isn’t so bad—what’s

4. The National Index on Corruption and Good Governance measures the corruption experienced by heads o households inaccessing 35 public services, through 32 state surveys conducted with a strictly probabilistic sample. The index is obtainedby dividing the number o times a bribe is paid to access the 35 public services surveyed, by the total number o times the 35services are used, and then multiplying this number by 100.

Number o times a bribewas paid or the 35 services

ICBGs = ___________________________ x 100Total number o times

the 35 services were used

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Results rom National Survey on Corruption and Good Governance

Item 2001 2003 2005 2007

National Index on Corruption andGood Governance

10.6 8.5 10.1 10.0

Average index on ve public servicesexclusively at ederal level ¹/

10.7 9.1 10.3 9.0

Number o corrupt actions 214 millions 101 millions 115 millions 197 millions

Average approximate cost o eachcorrupt action

$109.50 $107.00 $177.40 $138.00

¹/ Receiving mail; obtaining military cartilla (booklet veriying completion o military service) or exemption rom military servi-ce; obtaining or accelerating process to obtain passport rom Ministry o Foreign Aairs; obtaining or re-establishing electricityhook-up or home; passing belongings through customs oce, checkpoint, military guard post, or border port.

Source: Developed by author with data rom Transparency Mexico.

bad is getting caught.” In 2005, those agreeingwith this statement increased to 40.8%, andin 2007 this percentage decreased notably to28.2%, however still at a high level.

In another question included in the survey, 33%o those interviewed in 2007 indicated that they

obey and respect laws because “complying withthe law benets everyone;” 19.1% said they didso because “respecting the rights o others is anobligation;” and 12.7% said “it makes it possi-ble to live in peace.” However, it is important toemphasize that 16.4% said they obey laws “out

o ear o authorities and to avoid punishment,”and 4.5% “to avoid being viewed negatively anddue to guilt eelings.”

In addition the nongovernmental organizationLatinobarómetro annually issues the results roma public opinion study based on approximately

19,000 interviews conducted in 18 Latin Ame-rican countries. Questions include aspects o le-gality, condence and citizen participation. It isespecially worth noting that on the topic o lega-lity, 37% o those surveyed in Mexico respondedthat it is absolutely necessary that citizens obey

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laws. This percentage placed our country amongthose with the lowest scores on this item, and at11 percentage points below the Latin Americanaverage.

Anti-Corruption Conventions

Mexico has made commitments at the internatio-nal level to take steps to ght corruption. It hassigned and ratied three important anti-corruptionconventions: Inter-American Convention againstCorruption, o the Organization o American Sta-tes (OAS)5; Convention on Combating Briberyo Foreign Public Ocials in International Busi-ness Transactions, o the Organization or Eco-

nomic Cooperation and Development (OECD)

6

;and the United Nations Convention Against

Corruption (UNCAC)7, also known as the MeridaConvention.

These legal instruments establish mechanisms orcombating dierent dimensions o corruption, andalso promote and acilitate cooperation amongcountries. Among the recommendations and the

topics that are still pending or our country are theollowing:

5. The Inter-American Convention against Corruption was signed on March 29, 1996 in Caracas, Venezuela, and adopted bythe Specialized Conerence on Corruption organized by the Organization o American States (OAS). It was approved byMexico’s National Senate on October 30, 1996, according to the decree published in the Ocial Gazette (Diario Ocial dela Federación) on November 18, 1996.

6. The Convention on Combating Bribery o Foreign Public Ocials in International Business Transactions, o the Organizationor Economic Cooperation and Development (OECD), also known as the Anti-Bribery Convention, was signed on December17, 1997, and approved by the National Senate on April 22, 1999, according to the decree published in the Ocial Gazette(Diario Ocial de la Federación) on May 12, 1999.

7.A high-level political conerence was held in Merida, Yucatan on December 9-11, 2003, with UN member countries signingthe United Nations Convention Against Corruption. The Convention entered into eect on December 14, 2005. Mexicosigned the Convention on December 9, 2003, and it was approved by the National Senate on April 29, 2004, according tothe decree published in the Ocial Gazette (Diario Ocial de la Federación) on May 27, 2004.

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Institutional advances and

challenges

Over the last ten years, important institutionalsteps have been taken in the area o accountabili-ty. Some outstanding examples include: the crea-tion o the Federal Superior Auditing Oce; the

publication o the Federal Law on Transparency

and Access to Public Government Inormation;the creation o the Federal Institute or Access toInormation; the establishment o Proessional Ca-reer Service; the signing o conventions on com-bating corruption; the independence o InternalControl Entities in relation to controlled entities

Cooperation and technical assistance between•

ederal and state authorities, to eectively imple-ment the Convention.Strengthening legal norms and codes o conduct•

in relation to conficts o interest, as well as preser-vation and appropriate use o public resources.

Strengthening the verication o personal asset•

statements.Strengthening mechanisms or accessing public•

inormation.Strengthening systems or hiring public ocials•

in executive, legislative and judicial branches ogovernment.Strengthening systems through which the State•

acquires goods and services, in executive, legisla-

tive and judicial branches.Designing and implementing campaigns or in-•

creasing awareness o issues related to transpa-rency, directed at citizens and those participatingin political activities.

Civil society participation in ormulating policies•

and in public governance.Reciprocal legal assistance and cooperation in re-•

lation to compliance with laws.Extradition and conscation o assets.•

Strengthening measures or prevention o money•

laundering.Prevention o corruption through improved stan-•

dards in accounting and audits.Establishing legislation, mechanisms and inras-•

tructure or protecting whistle blowers, witnesses,experts and victims.

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and oces; the implementation o citizen monito-ring programs and social witnesses; and the laun-ching o web sites to clariy transparency-relatedobligations.

In addition, the 2001-2006 National Program orCombating Corruption and Promoting Transparen-

cy and Administrative Development was aimed atchanging the ocus o oversight and control, roma correction-based orientation to a ocus on pre-vention and co-responsibility with the FederalPublic Administration. As part o reorms to gua-rantee citizen rights related to access to inorma-tion and accountability, the Program broadens theimplementation o transparency as a mechanismor preventing and detecting irregularities.

In 2007 and 2008 important reorms have beencarried out in order to strengthen accountability.One example is constitutional reorm aimed at re-cognizing access to inormation as a undamentalright, and establishing principles and criteria thatmust be ullled by public institutions at all levels o government. Other examples are reorms to public

nance regulations, such as requiring the adoptiono schemes or evaluating perormance linked tothe budget, at all levels o government; and reormsthat expand the scope o the oversight o publicresources used by all public and private entities; aswell as reorms in the area o security and justice.

Even with these institutional changes, the percep-tion o corruption in our country has not changed,and this refects a lack o correlation between policiesimplemented and public opinion. This can be explai-ned to a signicant degree by particularities in theway that democratic change has taken place in ourcountry and by the unequal advancement between

structural and institutional reorms, on the one hand,and social and human development, on the other.

Mexican society has its own particular eatures. Itsevolution in many areas has been the product o its own history and its adaptations to the challen-ges represented by globalization and our positionin this context o major changes. Society has be-come more demanding and is keeping a closer eyeon government, as evident in surveys on valuesand political culture. However, at the same time,our society maintains practices and values that arecontrary to ethical and legal principles, and theseseem to be strongly rooted in individuals, groups,institutions and regulations.

Administrative-institutional reorms and govern-

ment reorms are acing new schemes o corrup-tion linked not only to traditional bribery andextortion practices, but also linked to regional andglobal networks associated with organized crime.

Thereore, the challenge o decreasing levels o co-rruption and implementing administrative reorms

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based on the values o transparency, accountabili-ty and public service is a shared responsibility bet-ween government and society.

Priorities and Arguments

The ollowing priorities are derived rom the va-

rious aspects presented in this section, and es-tablish guidelines or new strategies and eortsmore appropriate to the current situation::

• Consolidate policies on information, transparen-cy and accountability, as instruments or preven-ting corruption.

• Strengthen oversight of the use of public resour-ces, transers and subsidies.

• Strengthen scrutiny of investment in infrastructure.

• Improve internal regulatory framework for the

Federal Public Administration.

• Promote a culture of legality in society.

• Strengthen ethical values of public ofcials in the


• Institutionalize a policy of citizen participation in

the Federal Public Administration.

• Establish mechanisms for coordination among

the government oces responsible or combatingcorruption.

• Combat corruption in institutions in the fede-ral government responsible or justice and publicsecurity.

Through accountability and transparency, and bydeliberately opening up access to inormation, itis possible to limit opportunities or irregularitiesand corruption. However, although signicantprogress has been made, some areas are not yetcompletely transparent, specically operationalregulations and the use o ederal program expen-ditures, such as subsidies, donations, trusts, andpublic contracting processes.

With regard to public contracting, we need onlyto consider that 22% o the annual expendituresbudget is designated to this area in order to see thesignicant impact on the country’s economic acti-vity. A study conducted by the Monterrey Tech-nological Institute o Higher Education indicated

that or each public contract granted in Mexico,there are extra-ocial payments o 8.5%, and anadditional 5% must be added or administrativebureaucracy.

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There are also results rom a joint study by theMinistry o Public Administration, the World Bankand the Inter-American Development Bank indi-cating that the public contract system in Mexiconeeds to be modernized, simplied and made morefexible. The system must be more open and com-petitive, and should concentrate less on complian-

ce with and control over regulatory ormalities.It is thereore necessary to transorm the ederalgovernment’s public contract system, in order topromote the ecient and economic delivery o goods and services, guided by solid principles o transparency, ethics and accountability.

Oversight is oriented toward scrutinizing the wayresources are used by the responsible governmentoces and entities, ocusing on rational use andadherence to established norms, and also the re-sources transerred by the ederal government tostate governments through allocations, re-allo-cations, subsidies and donations. In addition, theoversight process should generate actions ocusedon prevention and improvement, with added valueand impact on the ways in which Federal Public

Administration oces carry out their activities. Itis also vitally important to align the processes o programming, budgeting, and the use and over-sight o public expenditures.

The 2007-2012 National Inrastructure Programincludes projects that are very important or thecountry’s development, and it is thereore vitallyimportant to strengthen the processes or audi-ting and inspecting uture public works.

The internal regulations or government entities

and oces tend to be extensive, complex andparticularly ocused on controlling aspects, andthus become an obstacle to eciency. For thisreason, the 2008-2012 Special Program or Im-provement in Governance in Federal Public Ad-ministration includes actions aimed at simpliyingthese regulations. The Program we are presentinghere will support these eorts to ensure that theregulatory ramework promotes transparency andaccountability.

A genuine, consolidated culture o legality signi-es that members o society accept the rule o law, on the basis o their personal convictions,their values, principles and reasoning. It meansthey accept and exercise their role as citizens, andrecognize and respect the value, rights and dignity

o other citizens. In a culture o legality, peopleaccept and abide by the law—not because o thethreat o punishment, but because o their perso-nal convictions.

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Ch C B k d d P i i i





The Ministry o Public Administration conducteda study during the last quarter o 2007 on themechanisms or citizen participation in the ederalgovernment. The study’s purpose was to identiyareas o opportunity or strengthening the scopeand impact o citizen participation. One o themost signicant ndings points to the need or

promoting conditions in the country’s institutionsthat avor citizen participation in government. Forexample, it is necessary to approve the use o eco-nomic and human resources or this purpose, andto dene the criteria, authority and obligations o institutions to implement mechanisms or citizenparticipation.

This Program seeks to place citizens at the centero attention in Public Administration, by creatingan active, ongoing link with organized sectors, andby expanding opportunities or citizens to partici-pate in public policies. Thus, norms, criteria, me-chanisms and procedures will be unied in order toprepare the Federal Public Administration to res-pond to society’s proposals and to provide citizenswith greater certainty in exercising their right to

be heard.

In addition, the ght against corruption makes itnecessary to promote greater coordination amongoces and entities in the Federal Public Admi-nistration, particularly among those carrying out

unctions closely associated with the prevention,investigation and prosecution o crimes linked topublic ocials. These include activities such as theinspection o individuals and merchandise at bor-ders, airports and maritime ports, as well as theprevention o operations conducted with illegally-obtained resources through the nancial system

and other economic agents.

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Chapter III.NDP Objectives and 2030 Goalsto which the Program contributes

The 2008-2012 National Program on Accounta-bility, Transparency and Fighting Corruption hassix major objectives that contribute to achieving

the 2007-2012 National Development Plan(NDP) objectives and lines o action.

AREA 1: Rule o law and security

Objectives in National Development Plan2007-2012

Objectives in National Program on Accountability,

Transparency and Fighting Corruption2008-2012

Objective 1. Guarantee legal certainty and predictabilityin the enorcement o the law or the entire population:

Reduce the discretionary manner in which administrative•

and legal authorities enorce regulations.

6. Combat corruption in ederal government institu-tions that participate in the prevention, investiga-tion and prosecution o crimes, as well as in carryingout criminal sanctions.

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Chapter III. NDP Objectives and 2030 Goals




p jto which the Program contributes

Objective 5. Combat impunity to diminish levels o crimi-nal incidence:

Strengthen coordination and cooperation among the•

three levels o government, to ght crime.

Assure the transparency and accountability o authorities•

in charge o ghting crime.

Focus the justice system in avor o victims, guaranteeing•

the protection o their integrity, dignity and identity at alltimes.

. Combat gender violence and increase the severity o pu-•

nishment or this type o violence.


Objective 9. Generalize the population’s condence inpublic institutions, particularly in those responsible orproviding public security and or procuring and imparting

justice:

Bring transparency to operational processes in public ser-•

vices received by citizens.Strengthen mechanisms or communication with citizens•

and disseminate public government inormation in a ti-mely manner.

Promote institutional identication, the value o public•

service, and proessional ethics o public ocials.

Coordinate and establish mechanisms or transparency•

and accountability in state and municipal governments inthe use o ederal resources.

1. Consolidate a State policy in the areas o inorma-tion, transparency and accountability.

3. Contribute to the development o a culture charac-terized by adherence to the law, ethics and publicresponsibility.

4. Institutionalize mechanisms or citizen participationand networking in the ght against corruption andimprovement in transparency and legality.

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to which the Program contributes

Objective 10. Boldly combat corruption.

Promote an anti-corruption culture.•

Disseminate inormation regarding the sanctions to be•

imposed on public ocials who engage in illegal beha-viors, in order to activate “social sanction” mechanisms.

Consolidate the scheme or internal control entities, to•

reduce the risks o corruption and lack o transparency in

the public sector.Strengthen systems or preventing, detecting and contro-•

lling corruption.

Create mechanisms that acilitate whistle-blowing on•

public ocials engaging in illegal practices.

1. Consolidate a State policy in the areas o inorma-tion, transparency and accountability.

2. Strengthen oversight o public resources and improveinternal control in the Federal Public Administration,in order to contribute to institutions’ eectivenessand perormance.

3. Contribute to the development o a culture charac-terized by adherence to the law, ethics and public

responsibility.4. Institutionalize mechanisms or citizen participation

and networking in the ght against corruption andimprovement in transparency and legality.

5. Establish mechanisms or coordinating actions to com-bat corruption in the Federal Public Administration.

6. Combat corruption in ederal government institutionsthat participate in the prevention, investigation andprosecution o crimes, as well as in carrying out cri-

minal sanctions.

Objective 11. Promote the development o a culture o legality.

3. Contribute to the development o a culture charac-terized by adherence to the law, ethics and publicresponsibility.

Objective 18. Promote citizen participation in preventingand combating crime.

Consolidate a tradition o whistle-blowing in society.•

Create channels or citizen participation in the area o•

preventing and combating crime.

Guarantee the scrutiny, monitoring and evaluation o pu-•

blic security and justice institutions and orces.


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AREA 5. Eective democracy and responsible oreign policy

Objectives in National Development Plan

2007 – 2012

Objectives in National Program on Accountability, Transparency and Fighting Corruption 2008-2012

Objective 3. Develop a political-civic culture thatpromotes citizen participation in ormulating andevaluating public policies

Promote the creation o citizen participation•

councils as undamental mechanisms or citizenparticipation in ormulating public policies, and intransparency and accountability.

Strengthen mechanisms or citizen participation•

and promote them in Federal Public Administra-tion oces and entities.

1. Consolidate a State policy in the areas o inormation, trans-parency and accountability.

4. Institutionalize mechanisms or citizen participation and net-working in the ght against corruption and improvementin transparency and legality.

Objective 5. Promote and guarantee transparen-cy, accountability, access to inormation, and pro-tection o individuals’ personal data, in all areas o government

Coordinate and establish mechanisms or transpa-•

rency and accountability in the use o ederal re-sources in state and municipal governments.

Promote mechanisms or making public gover-•

nment inormation clear, accurate, timely andreliable.

Promote, among the general population, the be-•

nets o exercising the right to access public go-vernment inormation, with special emphasis oneducational school programs and training or publicocials.

1. Consolidate a State policy in the areas o inormation, trans-parency and accountability.

2. Strengthen oversight o public resources and improve inter-nal control in the Federal Public Administration, in order tocontribute to institutions’ eectiveness and perormance.

3. Contribute to the development o a culture characterized byadherence to the law, ethics and public responsibility.

6. Combat corruption in ederal government institutions thatparticipate in the prevention, investigation and prosecutiono crimes, as well as in carrying out criminal sanctions.

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Promote a civic culture o transparency and•

accountability.

Conduct campaigns or disseminating useul inor-•

mation to citizens regarding government programsand projects.

Objective 6. Support Mexico’s economic, social and

political development based on the country’s suc-cessul insertion in the world

Promote compliance and harmonization o natio-•

nal legislation with international instruments thatMexico has signed and ratied.

5. Establish mechanisms or coordinating actions to combat co-

rruption in the Federal Public Administration.

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Chapter III. NDP Objectives and 2030 Goalshi h h P ib





Goals in Visión México 2030

Through this program, the Ministry o Public Administration is contributing to the ollowing Visión Méxi-co 2030 goals:

Rule o Law and Security

Goal 1 Rule o Law

For Mexico to rank in the 20% o countries with the best scores on the World Economic Forum’s Institutional Strength•

Index.

The Program may have an impact on the ollowing Indexcomponents:

Diversion o public unds.•

Favoritism in decisions o government ocials.•

Competitive and Job-Creating Economy

Goal 8 Competitiveness

For Mexico to rank among the 20% o countries with the best scores on the World Economic Forum’s Competitiveness•

Index. The Program may have an impact on the ollowing Indexcomponents:

Public institutions: ethics and corruption, undue•

infuence.

Eective Democracy and Responsible Foreign Policy

Goal 25 Combating Corruption

For Mexico to obtain a score o 9 on Transparency International’s Corruption Perceptions Index.•

The Program may contribute to the ollowing Indexcomponents: Corruption among the country’s politicians and public•

ocials.

Goal 26 Governability

For Mexico to obtain a score o 75 on the World Bank’s Governability Index.•

The Program may have an impact on the ollowing Indexcomponent:

“Control o Corruption” variable.•

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Chapter III. NDP Objectives and 2030 Goalst hi h th P t ib t





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Chapter IV. Objectives, Indicators and Goals | Objective 1



p j | j

January

Number of visits up to October 31, 2008

February March April May June July August September October November December

Number o Visits to Transparency Obligations Portal, 2007-2008

From February 15, 2007 to October 31, 2008

Ten ofces or entities with the greatest number o requests or inormation

With 38.9% of total requests(percentage with respect to total)

Up to October 31, 2008

PUBLICADMINISTRATION

HEALTH

Source: Alonso Lujambio, “Una numeralia sobre el ejercicio de derecho de acceso a la inormación en relación con el Ejecutivo

Federal, 2003-2008.” Segundo Seminario Internacional de Acceso a la Inormación y Protección de Datos Personales.

Source: Alonso Lujambio, “Una numeralia sobre el ejercicio de derecho de acceso a la inormación en relación con el EjecutivoFederal, 2003-2008.” Segundo Seminario Internacional de Acceso a la Inormación y Protección de Datos Personales.

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Chapter IV.Objectives, Indicators and GoalsObjective 1

Consolidate a State policy in the areas o inor-mation, transparency and accountability.

Democratic governability supposes the existence

o public policies and administrative practices that

are compatible with democratic principles and va-

lues. It is thereore necessary or transparency and

accountability policies to be expanded and conso-lidated in State institutions.

Thereore, the goal is to consolidate the construc-

tion o government that is based on the rule o

law, and that is transparent, responsible, ecient

and accountable to society. To this end, the Pro-

gram seeks to create institutional mechanisms or

consolidating the necessary practices and valuesor establishing a Public Administration system

that is honest, that brings transparency to and dis-

seminates inormation regarding its actions, and

that is prepared to be accountable or its actions

and its use o public resources.

Political will and determination are necessary to

stop corruption, to promote public integrity and to

rebuild the credibility o public institutions in the

eyes o citizens. Also necessary is a comprehensi-

ve, consistent strategy. A State policy against co-

rruption must have a long-term vision, in which

social practices and values that lead to corruption

are progressively identied and eliminated. Such apolicy requires co-responsibility among the three

branches o government and society.

Improved democratic mechanisms or accountabi-

lity, or managing government inormation, crea-

ting transparency, and combating corruption are

elements that promote more ecient Public Ad-ministration that responds to the needs o socie-

ty and contributes to strengthening condence in

institutions and the country’s competitiveness.

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Indicator Unit o measurement Baseline 2012 Goal

Compliance by the Federal Public Ad-ministration with all quality criteria es-tablished in guidelines or institutionalinternet portals.

Percentage o Federal Public Administra-tion oces and entities that comply withall quality criteria established in guidelinesor institutional internet portals.

40%

2008Projection

65%

Publication o targeted inormation inweb pages or Federal Public Adminis-tration oces and entities¹/.

Percentage o oces and entities thatpublish targeted inormation in their webpages.

None ³/ 100%

Compliance by Federal Public Adminis-tration oces and entities with provi-sions in Article 6 o Mexico’s NationalConstitution 2/.

Percentage o Federal Public Administra-tion oces and entities that comply withstipulations in Article 6 o Mexico’s Natio-nal Constitution.

None ³/ 100%

3/ None: since this is a new measurement, no baseline is available.1/ Targeted inormation is inormation that contributes to citizens’ decision-making regarding private and public goods. Thepublication o this inormation corrects asymmetries in inormation in markets, and such inormation can serve to establishregulatory tools. Specic criteria will be adopted to permit ull identication o targeted inormation.2/ Article 6 o the National Constitution establishes that in order to allow or the right to access to inormation to be exercised,the ederal and state governments and the Mexico City government, in their respective jurisdictions, will be guided by the o-llowing principles and oundations:

I. All inormation in the possession o any ederal, state or municipal authority, entity or body is public and can only bereserved temporarily or reasons o public interest in the terms established by law. The principle o maximum publicitymust prevail in the interpretation o this right.

II. Inormation reerring to private lie and personal data must be protected in the terms and with the exceptions esta-blished by law.

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III. All individuals will have no-cost access to public inormation, to their personal data or the rectication o such data,without being required to speciy their interest or justiy such use.

IV. Mechanisms or access to inormation and transparent review procedures will be established. These procedures willbe substantiated beore specialized, impartial bodies or entities that are autonomous in their operations, governance anddecision-making.

V. Obligated subjects must preserve their documents in updated administrative les and must publish complete, updatedinormation through available electronic means regarding the indicators o governance and use o public resources.

VI. Laws will determine the manner in which obligated subjects must publicize inormation related to public resources

transerred to individuals or businesses.VII. When provisions stipulated in the area o access to public inormation are not ullled, sanctions will be applied inthe terms established by law.

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Internal Control Organs’ performance

Tendency line

2004 quarters

1st 2nd 3rd 4th 1st 2nd 3rd 4th 1st 2nd 3rd 4th 1st 2nd 3rd 4th 1st 2nd 3rd 4th

2005 quarters 2006 quarters 2007 quarters 2008 quarters

Evaluation o Perormance o Internal Control EntitiesMIDO Perormance Evaluation or Internal Control Entities, 2004-2008

Audits by Internal Control Entities and Results Obtained, 2007-2008

Source: “Segundo Inorme de Labores,” Ministry o Public Administration.

Item

Annual Data January - June /3

Observed2007

Goal2008

2007 2008Variation% Annual

Universe o institutions directly andindirectly overseen /1 296 313 296 313 5.7

Internal control entities in Federal Public Ad-

ministration, with “PAAC” registered withthe Ministry o Public Administration /2 212 210 212 207 -2.4

Audits conducted 3,816 3,418 1,749 1,563 -10.6

Source: “Segundo Inorme de Labores,” Ministry o Public Administration.1/ The universe o institutions overseen was updated or 2008, on the basis o the catalogue “Instituciones Sujetas a la Ley

Federal de Entidades Paraestatales.”2/ In September 2007, 13 Internal Control Entities (Órganos Internos de Control—OIC) were terminated, however at the end

o that same year and in early 2008, eight new OICs were created within institutional structures.3/

The annual goal has not been met or 2008, since ullling this goal depends on actors outside o the Ministry’s control.

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Objective 2

Strengthen oversight o public resources andimprove internal control in the Federal PublicAdministration, in order to contribute to insti-tutions’ eectiveness and perormance.

The undamental purpose o the Ministry o PublicAdministration has evolved rom an initial ocus pri-marily on detecting and correcting errors, irregula-rities and omissions in the government’s economicand nancial administration and on the behavior o public ocials, to a new ocus on improving admi-nistrative practices and preventing corruption.

The proposed actions are oriented toward increa-

sing the eectiveness o oversight mechanisms,and promoting the strengthening and improvingo internal control over the oces and entitieso the Federal Public Administration and FederalAttorney General’s Oce and units o the Oce o Mexico’s President, with the aim o reducing riskso corruption and improving public governance.

Our starting point is the premise that control is notlimited exclusively to the budget area, and that themost eective control is that which does not allowirregularities, since the objective is to achieve e-ciency in public policies and good governance o ederal public resources.

We believe that oversight and control o public ex-penditures should be oriented toward the correcthandling o ederal public resources transerred topublic institutions, as well as the prevention, de-tection and sanctioning o irregular practices. Theaim is or such oversight and control to become aneective instrument in ghting corruption.

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Recurring observations made by over-sight entities regarding Federal PublicAdministration oces and entities. ¹/

Percentage o recurring observations re-garding Federal Public Administrationoces and entities, in comparison withprevious year.

50.64%

Year 200740%

Perormance audits conducted inFederal Public Administration ocesand entities.

Percentage o perormance audits conduc-ted by Internal Control Entities, with res-pect to all audits conducted.

9% Year 2007

50%

States with an updated CoordinationAgreement between the Ministry o Public Administration and the StateExecutive Branch.

Percentage o states with updated Coordi-nation Agreements.

22%

Year 2008100%

Eectiveness o Simulated User ope-rations in combating corruption in the


Percentage o simulated user operations inwhich cases o corruption have been de-

tected and have led to sanctions.

None2/ 80%

Eectiveness o administrative sanc-tions imposed on public ocials in theFederal Public Administration.

Percentage o rm sanctions imposed onpublic ocials

70%3/

Year 200877%

1/ Recurring observations are regulatory violations detected during the audits conducted by a number o oversight entities:Public Administration System (Sistema de la Función Pública), Federal Superior Auditing Oce (Auditoría Superior de la Fe-deración), National Banking and Securities Commission (Comisión Nacional Bancaria y de Valores), National Commission onInsurances and Deposits (Comisión Nacional de Seguros y Fianzas), Sector-Based Coordinators (Coordinadoras Sectoriales),Federal Treasury (Tesorería de la Federación), and registered under the same item as observed the previous year and registered

in the Periodic Inormation System (Sistema de Inormación Periódica).2/ None: since this is a new measurement, no baseline is available.3/ Estimated data.

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ITEM

ANNUAL DATA

OBSERVED 2007 ESTIMATED 2008¹/ANNUAL %VARIATION

SEPTEMBER-AUGUST

Total Sanctions

Warnings 3/

Reprimands

DismissalsDisqualifications

SuspensionsEconomic Sanctions

Amount of Economic Sanctions

Number of PublicOfficials Sanctioned

ITEM

ANNUAL DATA SEPTEMBER-AUGUST

OBSERVED2007

ESTIMATED2008¹/

ANNUAL %VARIATION

Total Sanctions

Administrative Negligence

Violation of Contract Procedures

Violation of Budget Laws and Regulations

Abuse of Authority

Lack of Honesty

Non-compliance with presentationof personal assets declaration

Other

Administrative Responsibilities o Public Ofcials in Federal Public Administration

Cause o Administrative Responsibilities o Public Ofcials in Federal Public Administration

Source: “Segundo Inorme de Labores,” Ministry o Public Administration.¹/ Preliminary gures, data to June estimated to December 2008.²/ Preliminary gures, data to June estimated to August 2008.³/ The administrative sanction reerred to as “Warnings” is no longer regulated in the Federal Law on Administrative Respon-

sibilities o Public Ocials, and thereore its tendency will disappear.Inormation is considered according to the date upon which the resolution was issued.

Source: “Segundo Inorme de Labores,” Ministry o Public Administration.¹/ Preliminary gures, data to June estimated to December 2008.²/ Preliminary gures, data to June estimated to August 2008.Inormation is considered according to the date upon which the resolution was issued.

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Objective 3

Contribute to the development o a culture cha-racterized by adherence to the law, ethics andpublic responsibility.

In compliance with the commitment made by theederal government to enhance respect or therule o law by rmly establishing a culture o adhe-rence to the law, and in observance o the respon-sibilities established in the National Agreement onSecurity, Justice and Legality, a number o strate-gies will be implemented in two areas:

1. Within the Federal Public Administration andthe Federal Attorney General’s Oce, with the

establishment o guidelines and criteria basedon ethics and public responsibility, to achieve acultural transormation, consolidating an ethi-cal vision with values and principles orientingthe actions o public ocials toward honesty,transparency, integrity and accountability, andincreasing their awareness o the importance o adhering to legality and the importance o the

exemplary role they should ulll in the eyes o society.

2. In society, with coordination by the ede-ral public administration, to develop a cultu-re o legality in the awareness and daily lives

o individuals, including actions to strengthenthe collaboration between citizens and govern-ment institutions, and with the aim o unders-tanding: a) the reasons that a culture o legalityis necessary or the construction o a democra-tic society, b) the way in which corruption andillegality weaken the rule o law, and c) theresponsibility o citizens and public ocials torespect and enorce the law.

Developing a culture o adherence to legality willinvolve the modication o paradigms ocused onchanging illegal behaviors. These behaviors inclu-de those o individuals who ail to respect basicguidelines and those o public ocials who violateinstitutional procedures and violate principles and

values based on ethics and public responsibility.

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Compliance by Federal Public Admi-nistration oces and entities withthe Index on Strengthening a Cul-ture o Legality, Ethics and PublicResponsibility.¹/

Percentage o oces and entities that ob-tain a score above 8 on the Index (scale o 0 to 10).

None ³/ 80%

Compliance with the Fourth Chapter

o the Federal Law on AdministrativeResponsibilities o Public Ocials, toestablish preventative actions or gua-ranteeing appropriate public service inFederal Public Administration ocesand entities.²/

Percentage o Federal Public Adminis-tration oces and entities that complywith Chapter Four o the Federal Law onAdministrative Responsibilities o PublicOcials.

None ³/ 80%

Federal social development programsthat provide training to beneciariesregarding their rights and obligations.

Percentage o ederal social developmentprograms that provide training to benecia-ries regarding their rights and obligations.

15%

Year 200850%

¹/ The Index is composed o the actions that Federal Public Administration oces and entities should implement and carryout in the areas o legality, transparency, ethics and public responsibility. Especially worth highlighting are: a) the establish-ment and implementation o ongoing programs or disseminating inormation, increasing awareness, and providing trainingand education or public ocials; b) compliance by public ocials o the principles and values established in the Federal PublicAdministration’s Code o Ethics; c) the institutionalization o Codes o Conduct; d) the dissemination o inormation regar-ding sanctions imposed on public ocials who engage in illegal behaviors; e) the adoption o sel-regulatory mechanisms thatenhance a transparent relationship between government and society; and ) eorts coordinated with private enterprise andaimed at incorporating best practices in the areas o social responsibility, corporate governance and others, and contributing tocompliance with Anti-Corruption Conventions.

²/ The Fourth Chapter o the Federal Law on Administrative Responsibilities o Public Ocials indicates that the Ministry oPublic Administration will issue general guidelines or oces and entities or establishing ongoing actions to dene the beha-viors or public ocials in specic situations, in the perormance o their jobs, positions or assignments.

³/ None: since this is a new measurement, no baseline is available.

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Source: Document entitled “Participación Ciudadana…¿para que? Hacia una política de participación ciudadana en el GobiernoFederal,” Ministry o Public Administration, Mexico, 2007. (http://www.programaanticorrupcion.gob.mx/).

Note: The data rom this document result rom a survey conducted with 197 Federal Public Administration oces andentities.

Sector TotalCreated byregulations

Created withoutobligation

Social development and renewable resources 42 42 0

Economic development 31 24 7

Education and culture 55 47 8

Energy 16 10 6

Treasury 15 11 4

Health, work and social security 18 16 2

National security 12 7 5

Total 189 157 32

Percentage 100% 83% 17%

Citizen or Advisory Councils in Federal Public Administration

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Objective 4

Institutionalize mechanisms or citizen partici-pation and networking in the fght against co-rruption and improvement in transparency andlegality.

In a democracy, the link between government andsociety is undamental to preventing corruptionand assuring the accountability o those in the po-sition o governing. When citizens become invol-ved, they demand accountability, generating socialdynamics in which the government’s perormanceimproves and corruption is prevented. Thereore,with the strengthening o mechanisms or citizenparticipation, the goal is to involve social and pri-

vate sectors in an active, ongoing way in the ghtagainst corruption. This does not mean, however,that emphasis will be taken away rom the actthat the government is responsible or sanctioningirregularities in Public Administration.

We will continuously promote the creation o linkswith sectors and groups representative o society,

such as chambers o commerce, higher educationinstitutions, proessional associations and civil so-ciety organizations, to mention a ew. Creatinglinks with these stakeholders is indispensable toenhancing transparency, integrity, legality and ac-countability. The aim is to promote political and

institutional conditions that will eliminate possibi-lities or impunity. This will contribute to creatingan atmosphere o condence in the country, topermit improved perormance by institutions andby the economy.

It is also o urgent importance to provide citizenswith the technical tools or exercising social con-trol o government programs. To this end, eortswill be concentrated on implementing the regula-tory ramework governing Citizen Monitoring, andstrengthening the social abric by developing over-sight capacities. Thereore, schemes or coordina-tion and co-responsibility will be established withpublic ocials in the ederal public administrationwho are responsible or supervising social develo-

pment programs, with the aim that they will serveas the main promoters o Citizen Monitoring; andwith the states and municipalities where ederalsocial development programs are carried out, withthe aim o expanding the organized, well-inormedsocial groups capable o demanding accountabilityrom those in the position o governing.

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Compliance with guidelines or gua-ranteeing citizen participation inactions or preventing and comba-ting corruption in the ederal publicadministration.

Percentage o Federal Public Administra-tion oces and entities that comply withguidelines or guaranteeing citizen par-ticipation in actions or preventing andcombating corruption in the ederal publicadministration.

None ²/ 100%

Federal programs that implement Citi-zen Monitoring schemes.

Percentage o ederal programs that imple-ment Citizen Monitoring schemes.

15%

Year 200850%

Civil Society Organizations that partici-pate in monitoring public governance inorder to contribute to transparency andthe ght against corruption.¹/

Percentage o Civil Society Organizationsthat participate in monitoring public go-vernance in order to contribute to transpa-rency and the ght against corruption.

None ²/ 50%

¹/ Organizations considered will be those enrolled in the Federal Registry o Civil Society Organizations and ocused on ci-

vic activities (2,093 as o December 8, 2008), in accordance with the Federal Law on Promoting Activities o Civil SocietyOrganizations.

²/ None: since this is a new measurement, no baseline is available.

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Objective 5

Establish mechanisms or coordinating actionsto combat corruption in the Federal PublicAdministration.

Combating corruption requires coordination by anumber o dierent entities and authorities. In theederal public administration, emphasis will be pla-ced on coordination among the Interior, Public Ad-ministration, Finance, Ministry o Public Credit andPublic Security and the Federal Attorney General’sOce, with the aim o implementing comprehen-sive actions or strengthening the government’scapacities, or the benet o society.

Since the ght against corruption is such an im-mensely complex problem, it requires co-responsi-bility between ederal and local governments, andto this end, coordination mechanisms will also beestablished in this program.

The Anti-Corruption Conventions ratied by theNational Senate are legal norms that oblige the

Mexican State to establish commitments or allbranches and levels o government. It is thus ne-cessary to coordinate actions that will acilitatecompliance with these international commitmentsand take the appropriate steps to combat acts o corruption in public administration.

In addition, with the objective o contributing toclean, air and transparent electoral process, it isvitally important that public ocials conduct theiractions within a ramework o legality that acili-tates the appropriate use o the public resourcesor which they are responsible. Blindaje electoral

eorts are aimed at preventing actions that under-mine the transparency o electoral processes.

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Cases o joint investigations by thePublic Administration, Finance and Pu-blic Credit, Interior and Public SecurityMinistries together with the FederalAttorney General’s Oce, o politica-lly exposed individuals¹/ or possibleinvolvement in high-impact crimes o

bribery and money laundering.

Percentage o cases investigated jointly inrelation to the cases identied.

None ³/ 100%

Cases investigated in the area o o-reign bribery.²/

Percentage o cases investigated in rela-tion to the cases identied in the area o oreign bribery.

None ³/ 100%

Cases investigated in the area o admi-nistrative violations and crimes in elec-toral matters, committed by ederalpublic ocials.

Percentage o cases investigated in rela-tion to the cases identied.

None ³/ 100%

¹/ According to the resolution through which the general provisions are stipulated or Article 95a o the General Law on CreditOrganizations and Auxiliary Activities, applicable to individuals who conduct operations reerred to in Article 81-A in the samelaw. This denition establishes the ollowing: A politically exposed person is an individual who perorms or has perormed espe-cially noteworthy public unctions in a oreign country or in national territory, including heads o State or government, politicalleaders, high-level government, judicial or military ocials, high-level executives o government-owned enterprises, and ocialsor important members o political parties.

²/ This indicator is based on the Anti-Bribery Convention o the Organization or Economic Cooperation and Development(OECD). This Convention is an international agreement through which signatory countries establish measures or deterring,preventing and sanctioning persons and businesses that promise, pay or cover up bribes to oreign public ocials participatingin international business transactions, as mechanisms or ghting corruption and particularly oreign bribery. Specic criteria will

be adopted to acilitate ull identication o cases susceptible to oreign bribery crimes.³/ None: since this is a new measurement, no baseline is available.

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ResultsAnnual Data January-June

% Variation2006 2007 2008 2009

Approved 4,750 4,310 2,172 1,924 -11.42

Not approved 1,911 1,543 1,091 1,005 -7.88

Not presented 188 8 5 54 980.00

Not concluded 52 444 238 174 -26.89

Inter-institutional support 0 0 0 256 0

Total 6,901 6,305 3,506 3,413 -2.65


Period Sep07 Oct07 Nov07 Dec07 Jan08 Feb08 Mar08 Apr08 May08 Jun08 Jul08 Aug08 Total

Candidatesevaluated(entry)

Center or TrustControl

(SEIP)682 774 470 519 263 288 197 388 337 254 373 298 4,843

Departmento trust

Control (PFP)1,251 657 987 633 668 1,383 1,548 1,613 1,207 896 877 1,220 12,940

Subtotal 1,933 1,431 1,457 1,152 931 1,671 1,745 2,001 1,544 1,150 1,250 1,518 17,783*

Current

personnelevaluated

Permanence 3 2 0 0 0 0 33 29 7 20 1 0 95

Promotion 87 224 137 46 56 140 47 2 427 2,794 1,030 542 5,532

Subtotal 90 226 137 46 56 140 80 31 434 2,814 1,031 542 5,627

Total 2,023 1,657 1,594 1,198 987 1,811 1,825 2,032 1,978 3,964 2,281 2,060 23,410

Trust Control in Public Ofcials in the Federal Attorney General’s Ofce

Evaluations Conducted with Public Ofcials in the Ministry o Public Securityrom September 2007 to August 2008

* Considered in this total are the 15,338 evaluations reported by the CNCC. The dierence can be ound in those evaluatedbetween September and December o 2007 by SEIP’s Center or Trust Control.


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Objective 6

Combat corruption in ederal government ins-titutions that participate in the prevention, in-vestigation and prosecution o crimes, as wellas in carrying out criminal sanctions.

It is vitally important to consolidate the public se-

curity and justice institutions that have demons-trated eciency and, in particular, honesty. Priorityshould be placed on preventing irregular behaviorsand illegal actions, maintaining an aggressive ghtagainst corruption and working toward an end toimpunity.

The ght against corruption in these areas should

be extended to other institutions and oces thatcarry out administrative unctions that, by theirnature, are closely linked to preventing, investi-gating and prosecuting crimes. Some o these ac-tivities include the inspection o individuals andmerchandise at borders, airports and maritimeports, as well as the prevention o operations con-ducted with illegally-obtained resources through

the nancial system and other economic agents.

The institutions and oces associated with theseactivities require public ocials who are strictlysubject to the principles o legality, objectivity,impartiality, proessionalism, eciency, honesty,

congruence, loyalty, transparency, respect or hu-man dignity, institutional solidarity and collabora-tion, certainty and prudence. For this reason it isimportant to strengthen and intensiy mechanismsor monitoring and supervision, giving priority tothe prevention o irregular behaviors and illegalactions. In this context it is necessary to assuretransparency and decision-making processes that

clearly speciy levels o responsibility and assurecoordination among the corresponding entities. Itis also vital to establish levels o sanctions againstthose responsible or committing irregular beha-viors or illegal actions.

The coordination and monitoring o the authorityinherent in public security and justice unctions,

but also in related administrative unctions, will bedecisive in consolidating the rule o law.

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Files on public ocials working inoces and entities related to publicsecurity and justice,¹ with updatedinormation.

Percentage o registries and individual leson public ocials associated with publicsecurity and justice.

None ³/ 40%

Compliance with requirements or per-

manence and principles o certainty,objectivity, legality, eciency, proes-sionalism, honesty, loyalty and impar-tiality on the part o public ocials²/in trust control procedures.

Percentage o the total corresponding topublic ocials who are not rated as suita-ble in condence control evaluations andare dismissed rom their positions.

None ³/ 100%

Strengthening o citizen participationin supervision and control systems, aswell as in monitoring actions derivedrom such participation.

Percentage o ordinary visits or technicaland legal evaluations as well as those o-cused on inspection and supervision, withparticipation by citizen visitors.

None ³/ 70%

Application o trust control evaluations

or permanence in the institutions par-ticipating in the prevention, investiga-tion and prosecution o crimes.

Percentage o administrative and support

personnel in the Ministry o Public Securitywho have been subject to trust control eva-luations to determine their permanence.

5%2008 100%

Application o trust control evaluationsor permanence in the Federal PoliceForce.

Percentage o ederal police ocers whohave been subject to trust control evalua-tions to determine their permanence.

24.17%2008

100%

Application o trust control evaluationsor permanence o guards in ederal

penitentiaries.

Percentage o guards in ederal peniten-tiaries who have been subject to trustcontrol evaluations to determine theirpermanence.

None ³/ 100%

¹/ Police ocers, public Ministries, experts and public ocials associated with administrative unctions in the areas o customs,migration, supervision and monitoring o institutions in the nancial system and the oces and entities related to public secu-rity and justice.

²/ Police ocers, public Ministries, expert witnesses and public ocials in the oces and institutions associated with publicsecurity and justice.

³/ None: since this is a new measurement, no baseline is available.

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Chapter V. Strategies and Lines of Action




Chapter V.Strategies and Lines of Action

Objective 1Consolidate a State policy in the areas o inor-mation, transparency and accountability.

Strategy 1.1Increase the eciency o transparency and publicinormation policies in the Federal Public Adminis-tration and Federal Attorney General’s Oce..

Lines o action

1.1.1 Develop evaluation guidelines and criteriato enable Federal Public Administration ocesand entities to comply with stipulations in Article6 o Mexico’s National Constitution.

1.1.2 Establish criteria, and adopt practices andstandards in inormation technologies, with theaim o uniying the institutional internet portals o Federal Public Administration oces and entities,to thereby make citizens’ access to public govern-ment inormation more ecient and eective.

1.1.3 Evaluate the inormation placed at citizens’disposal by Federal Public Administration ocesand entities, to veriy that this inormation is clear,timely, accurate and adequate.

1.1.4 Provide training to public ocials in the areao access to public government inormation.

1.1.5 Identiy actions o targeted, strategic trans-parency in the services provided by Federal PublicAdministration oces and entities, to acilitate ci-tizens’ decision-making with regard to public andprivate goods and services.

1.1.6 Create a network o Federal GovernmentLiaison Units to enable the unication o transpa-

rency and access to inormation processes in theFederal Public Administration.

1.1.7 Develop a regulatory ramework that bringsorder to and systematizes electronic inormationin the Federal Public Administration.

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Strategy 1.2Promote and coordinate actions with other bran-ches o government, other levels o government,private enterprise and civil society, to adopt ac-tions that will contribute to enhancing transpa-rency and accountability policies.

Lines o action

1.2.1 Strengthen mechanisms or coordinationwith states, with the aim o developing joint pro-grams and actions in the areas o transparency,accountability and the ght against corruption inMexico.

1.2.2 Increase current mechanisms or transpa-

rency in social programs and the transer o publicresources rom the ederal government to stateand municipal governments, to civil society orga-nizations and other stakeholders.

1.2.3 Provide incentives to academic institu-tions and research centers or conducting studieson transparency, accountability and combating

corruption.

1.2.4 Promote legal reorms and technical ounda-tions that will lead to the harmonization o accoun-ting systems in the three branches o government,

with the aim o issuing comparable nancial state-ments and uniorm public accounts.

Strategy 1.3Strengthen policies and actions in the area o combating corruption in the Federal Public Ad-ministration and the Federal Attorney General’sOce, as well as its democratic mechanisms or

accountability.

Lines o action

1.3.1 Assure accountability in the use o re-sources or public security programs, through thedissemination o inormation regarding the indica-tors o governance and measurement o the way

in which expenditures are made and their ecientoperation.

1.3.2 Strengthen the scheme or Internal ControlEntities and Delegates and Public Commissionersto accompany Federal Public Administration o-ces and entities in a co-responsible, prevention-oriented manner, in the analysis and reduction o risks o corruption and lack o transparency in ser-vices, programs and processes.

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Strategy 1.4Strengthen the regulatory ramework and the pro-cess o encouraging whistle-blowing and genera-te an appropriate legal instrument or protectingwhistle-blowers.

Lines o action1.4.1 Establish an ecient system or monito-

ring and responding in a timely manner to citi-zen complaints, petitions and whistle-blowing,with the primary characteristics o simplicity andunctionality.

1.4.2 Simpliy the means (in person, mailboxes,orms on internet) and regulations or presen-ting complaints, petitions and whistle-blowing, in

terms o timelines, procedures, requirements anddocumentation.

1.4.3 Incorporate mechanisms or citizen obser-vation in the process o responding to complaintsand whistle-blowing related to corruption andinappropriate behaviors by public ocials.

1.4.4 Generate a legal instrument that establis-hes the means or the protection, security andintegrity o public ocials who engage in whistle-blowing, and or saeguarding their jobs, positionsand assignments.

Strategy 1.5Improve regulatory aspects in order to promote

transparency and accountability in the Federal Pu-

blic Administration.

Lines o action1.5.1 Review internal regulations or oces

and entities in order to avoid generating obsta-cles to the eciency o processes and to inclu-

de conditions or prevention, transparency and

accountability.

Strategy 1.6 Transorm the Federal Public Administration’s sys-

tem o public contracts, moving rom an adminis-

trative and control unction to a strategic unctionin the ecient and eective use o public expen-

ditures, guided by solid principles o transparency,

ethics and accountability.

Lines o action1.6.1 Carry out a project to reorm the Law on

Acquisitions, Leases and Services in the Public

Sector and the Law on Public Works and RelatedServices, incorporating international best prac-

tices in the area o public contracts, and moving

rom a system o processes to a strategic tool or

eciency in public expenditures.

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1.6.2 Implement a process o consolidated pur-chasing and transversal contracts, in order to avoidmultiplicity o contract procedures, dierential pri-ces, risks o corruption and in general, ineciencyin public expenditures.

1.6.3 Redesign the Electronic System or Gover-nment Contracts, to make it possible to carry out

all contract procedures electronically (not onlypublic bidding processes); and to generate useulinormation or the ederal government that willassist in strategic decision-making in this area andwill permit unrestricted public scrutiny.

1.6.4 Establish a system o indicators that willprovide inormation on public contracts.

1.6.5 Perect mechanisms or resolving disputesthat arise during contract procedures and whencontracts are already in process, with the aim o strengthening the legal security o the public con-tract system, reducing litigation, generating cer-tainty and condence in private investment, andpromoting transparency and accountability in theuse o public expenditures.

1.6.6 Promote legality in the behavior o publicocials and o individuals who intervene in con-tract procedures, through an eective system o sanctions.

Objective 2Strengthen oversight o public resources andimprove internal control in the Federal PublicAdministration, in order to contribute to insti-tutions’ eectiveness and perormance.

Strategy 2.1Strengthen the prevention-deterrence ocus in the

work o Internal Control Entities, Public Commis-sioners and Delegates, and other oversight entitiesin the Ministry o Public Administration.

Lines o action

2.1.1 Strengthen the mechanism or administeringand evaluating the perormance o Internal Control

Entities and Public Commissioners and Delegates,to enable these actors to accompany Federal PublicAdministration oces and entities with a ocus onco-responsibility and prevention, in the implemen-tation o the Federal Government’s priorities andpolicies in reducing risks o corruption and lack o transparency, and in improving public governance.

2.1.2 Establish actions or strengthening inter-relations among Internal Control Entities:

1. Procedures or inter-relations among the centralareas o the Ministry o Public Administration andits Monitoring and Control Entities.

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2. System o liaisons among the Sub-Ministries,and the General Coordination Oce and Unitsor Monitoring and Control Entities, responsi-ble or serving as the channel or respondingto petitions and calls made to Monitoring andControl Entities.

3. With each Sub-Ministry, establish specic

processes corresponding to operating procedu-res or interaction, in which orms, times, res-ponsibilities and other elements guaranteeingthe expected outcome will be dened.

2.1.3 Generate a scheme o orums or concilia-ting the work o Internal Control Entities and Pu-blic Commissioners and Delegates with the work

o Federal Public Administration oces and en-tities and the Federal Attorney General’s Oce,with the aim o improving governance and a ocuson prevention.

2.1.4 Establish a scheme or comprehensive visits,or assuring the quality o the work and inorma-tion o Internal Control Entities.

2.1.5 That external auditing rms plan and deve-lop external audits with a ocus on prevention.

2.1.6 Increase the practice o perormance auditsor veriying that Federal Public Administration

oces and entities comply with the goals and objectives established, in an ecient and eectivemanner.

2.1.7 Implement the Zero Observations Program,to eliminate the recurrence o regulatory violationsderived rom audit observations in those areas re-presenting the greatest problems in the Federal

Public Administration and the Federal AttorneyGeneral’s Oce.

2.1.8 Veriy that the actions-recommendationsdetermined by the Federal Superior Auditing O-ce are addressed and resolved in a timely manner.

Strategy 2.2

Broaden the coverage and impact rom oversighto the Federal Public Administration and the Fede-ral Attorney General’s Oce.

Lines o action2.2.1 Align auditing programs with the areas o risk in the Federal Public Administration and Fe-deral Attorney General’s Oce.

2.2.2 Veriy that public works constructed withederal resources are carried out in the timelineand with the cost and quality expected, throughcontrol audits and proposed visits, and bring trans-parency to this process.

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2.2.3 Develop an inventory o public works ca-rried out by the Federal Public Administration.

Strategy 2.3Strengthen the schemes o collaboration betweenthe various oversight entities and governmentauthorities.

Lines o action2.3.1 Establish criteria or auditing the programsthrough which the ederal government transersederal public resources to states.

2.3.2 Detect areas o opportunity in the work o overseeing the three levels o government, andimprove inter-institutional coordination.

2.3.3 Work together with states, in line with thecoordination agreements signed, to promote theimprovement o processes in the ederal programscarried out by local governments.

2.3.4 Promote the adoption o internal controlstandards in states, with support rom the Perma-

nent Commission on State-Federal Comptrollers.

Strategy 2.4Promote strengthening and improvement o inter-nal control in the Federal Public Administration andFederal Attorney General’s Oce, to reduce riskso corruption and improve public governance.

Lines o action

2.4.1 Implement general internal control stan-dards in the Federal Public Administration and Fe-deral Attorney General’s Oce.

2.4.2 Implement the Risk Management Model inoces and entities o the Federal Public Adminis-tration and Federal Attorney General’s Oce.

2.4.3 Follow up on compliance with agreementsgenerated in sessions o the Control and AuditingCommittees o oces and entities o the Fede-ral Public Administration and Federal AttorneyGeneral’s Oce.

2.4.4 Identiy best practices in the area o inter-nal control, and implement them in the oces and

entities o the Federal Public Administration andFederal Attorney General’s Oce.

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Objective 3Contribute to the development o a culture cha-racterized by adherence to the law, ethics andpublic responsibility.

Strategy 3.1Promote a culture characterized by adherence to thelaw among public ocials in the Federal Public Admi-

nistration and Federal Attorney General’s Oce.

Lines o action3.1.1 Establish and implement programs or in-ormation dissemination and ongoing training orpublic ocials in the Federal Public Administrationand Federal Attorney General’s Oce, to streng-then a culture o transparency, integrity, adheren-

ce to legality and accountability.

3.1.2 As part o the education and training pro-gram linked to Monitoring and Control Entities,consider courses or other didactic resources ordeveloping skills in the culture o legality and ac-countability, to acilitate these practices in the Fe-deral Public Administration.

3.1.3 Establish training mechanisms to enable thoseentering public service in the Federal Public Adminis-tration through the Proessional Career Service, to beamiliar with provisions in the area o administrativeresponsibilities regulating public ocial actions.

Strategy 3.2Consolidate a culture o ethics and integri-ty among public ocials in the Federal PublicAdministration.

Lines o action

3.2.1 Issue general guidelines on the basis o which oces and entities o the Federal Public Ad-ministration and Federal Attorney General’s Oceshould establish preventative actions to guaranteeappropriate public service, in line with stipulationsin the Fourth Chapter o the Federal Law on Admi-nistrative Responsibilities o Public Ocials.

3.2.2 Evaluate compliance with the principles andvalues established in the Code o Ethics or PublicOcials in Federal Public Administration, througha system o indicators and evaluation.

3.2.3 Update and implement codes o conduct orFederal Public Administration oces and entities,based on the principles and values established inthe Code o Ethics or Public Ocials in Federal Pu-blic Administration.

3.2.4 Create a culture o public ethics that will es-tablish the values and principles guiding the actionso public ocials, in order to strictly comply with

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the law and to increase the awareness o publicocials regarding the exemplary role they shouldplay in society..

Strategy 3.3Promote a culture o integrity, adherence to lega-lity and rejection o corruption.

Lines o action

3.3.1 Establish and implement training programsor users and beneciaries o ederal programs, tocontribute toward consolidating a relationship bet-ween society and government that is transparentand adheres to legality, with a ocus on exercisingrights and meeting obligations.

3.3.2 In coordination with the country’s educa-tional authorities, promote the development andimplementation o programs and actions that con-tribute to strengthening the education o childrenand young people in the areas o transparency,ethics, integrity and a culture o legality.

3.3.3 Develop awareness-raising programs andcampaigns or promoting and consolidating a cul-ture o legality and rejecting corruption.

3.3.4 Disseminate inormation and promote theadoption o sel-regulation mechanisms in society,

to help increase the transparency o the relations-hip between government and society and amongprivate agents.

3.3.5 Disseminate inormation on eectively usingthe right to inormation as part o citizen monito-ring and deterrence o corruption.

3.3.6 Disseminate inormation regarding sanctionsimposed on public ocials who engage in illegal be-haviors, in order to activate society’s mechanismso sanctions and whistle-blowing

Strategy 3.4Identiy and incorporate best practices in integrity,transparency and accountability.

Lines o action

3.4.1 In coordination with private enterprise,identiy and incorporate practices in corporate go-vernance and social responsibility, to contribute toincreasing our country’s competitiveness.

3.4.2 Present good practices in the areas o trans-parency, ghting corruption and promoting a cul-ture o legality, to recognize the eorts o public,private, academic and social institutions.

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4.1.3 Promote the adoption o schemes orcomptrollers rom society in state and municipalgovernments.

Strategy 4.2Develop capacities in social and private sectors orco-responsible participation in the ght againstcorruption.

Lines o action

4.2.1 Establish a program or nancing projectsdeveloped by civil society organizations and highereducation institutions or preventing and ghtingcorruption in the Federal Public Administration.

4.2.2 Develop mechanisms or citizen participa-tion that contribute to the evaluation, supervisionand monitoring o public governance, especiallyin policies having a great impact on citizens andocused on accountability, transparency and com-bating corruption.

Strategy 4.3Establish homogeneous entities, standards, proce-

dures and mechanisms in the Federal Public Admi-nistration and Federal Attorney General’s Oce, orresponding to citizens, eectively addressing theirproposals and providing them with greater certain-ty in relation to the actions o public ocials.

3.4.3 Identiy, propose and promote the adoptiono corporate governance and social responsibilitypractices in companies in the semi-public sector.

3.4.4 Promote the adoption o practices that con-tribute to compliance with Anti-Corruption Con-ventions, in the private sector and in proessionalassociations.

Objective 4Institutionalize mechanisms or citizen partici-pation and networking in the fght against co-rruption and improvement in transparency andlegality.

Strategy 4.1Establish conditions in the Federal Public Adminis-tration and Federal Attorney General’s Oce or ci-tizen participation in the ght against corruption.

Lines o action

4.1.1 Establish guidelines or guaranteeing citi-zen participation in actions to prevent and ght

corruption in the Federal Public Administration.

4.1.2 Strengthen social participation in monito-ring ederal programs by issuing and monitoringregulatory and operational rameworks.

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the sector-based programs o Federal Public Ad-ministration oces, through the Inter-SectorCommission or Transparency and Combating Co-rruption in the Federal Public Administration.

5.1.2 Establish an inter-institutional coordina-tion scheme or investigating acts o corruption,as part o the national strategy against corruption

and money laundering.

5.1.3 Strengthen the implementation o conden-ce control procedures or the hiring o personnel inthe national security sector o the Federal PublicAdministration.

5.1.4 Establish a collaboration mechanism or im-

plementing condence control procedures in theacquisitions areas in the national security sectoro the Federal Public Administration.

5.1.5 Consolidate the operations o the TechnicalCommittee o the National Security Council, toacilitate the acquisition o goods, leases and ser-vices in the area o national security, guaranteeingthe transparency o contract processes.

5.1.6 Enhance verication o personal nancialasset declarations by public ocials, through aprevention-ocused review process.

Lines o action

4.3.1 Uniy, regulate and ollow up on entitiesand procedures in the Federal Public Administra-tion and Federal Attorney General’s Oce, orresponding to citizen complaints, petitions andwhistle-blowing.

4.3.2 Create homogeneous, high-quality proto-cols and standards in the Federal Public Adminis-tration and Federal Attorney General’s Oce, orresponding to citizens.

Objective 5Establish mechanisms or coordinating actions

to combat corruption in the Federal PublicAdministration.

Strategy 5.1Establish mechanisms or coordinating ac-tions to combat corruption in the Federal PublicAdministration.

Lines o action5.1.1 Veriy compliance with strategies and ac-tions that are ocused on accountability, transpa-rency and combating corruption, and that establish

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Strategy 5.2Coordinate actions between administrative and pe-

nal systems, or sanctioning acts o corruption.

Lines o action

5.2.1 Reduce the time interval required to prepare

les substantiating alleged criminal responsibility,or presenting the corresponding denouncement,

when applicable, to the Public Ministry.

5.2.2 Assist the Federal Public Ministry in acilita-

ting criminal proceedings in the cases denounced

by the Ministry o Public Administration, with the

aim o sanctioning acts o corruption.

Strategy 5.3Coordinate blindaje electoral actions (to prevent

illegal intervention in electoral processes).

Lines o action

5.3.1 Coordinate actions to prevent administra-

tive misdemeanors or crimes rom being commit-ted in electoral processes by public ocials in the

three levels o government.

5.3.2 Sign collaboration agreements or blindajeelectoral eorts with states where electoral pro-cesses are taking place, with the aim o preventingand sanctioning irregular conduct.

5.3.3 Promote citizen monitoring o social pro-grams, in order to prevent them rom being usedor electoral purposes.

Strategy 5.4Oversee compliance with Anti-Corruption Con-ventions in the Federal Public Administration.

Lines o action

5.4.1 Establish coordination mechanisms among

the dierent entities and authorities in Federal Pu-blic Administration involved in compliance with com-mitments derived rom Anti-Corruption Conventions.5.4.2 Promote compliance with and harmoniza-tion o national legislation with international ins-truments in the area o combating corruption.

5.4.3 Design and implement training programs orpublic ocials responsible or implementing pro-

grams, systems, standards, measures and mecha-nisms derived rom Anti-Corruption Conventions.

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6.2.2 Promote the establishment o the trust con-trol evaluation model, respecting internationalstandards, in public security and justice institu-tions at the state level, on the basis o applicablelegal instruments and regulations.

6.2.3 Bring uniormity to evaluation protocols, andthe operational processes and procedures in trust

control centers at the three levels o government,in the ramework o the National Public SecuritySystem, in order to incorporate the country’s bestmen and women in public administration.

6.2.4 Design and implement accreditation sys-tems in trust control centers, in order to veriythat processes are applied with minimum, unied

standards.

6.2.5 Conduct ongoing modication, updatingand systematization o the technical standardsand evaluation instruments used in condencecontrol exams.

6.2.6 Promote ongoing training and specializationo personnel responsible or conducting trust con-

trol evaluations.

Strategy 6.3Guarantee the scrutiny, ollow-up and evalua-tion o public security and justice institutions,

thereby promoting the institutions’ credibility andsociety’s condence in institutions

Lines o action

6.3.1 Evaluate the perormance and eectivenesso public security and justice institutions, on the basiso administrative indicators or making results trans-

parent, and strengthen the culture o accountabilityamong public ocials.

6.3.2 Establish links with entities in public, social andbusiness sectors, in order to coordinate the corres-ponding actions in whistle-blowing on irregularitiesand illegal actions o public ocials.

6.3.3 Consolidate centers or providing direct, com-prehensive guidance to citizens.

6.3.4 Strengthen citizen participation in oversightand control systems, on the basis o newly-developed,modern schemes or subjecting institutional activitiesto public scrutiny, and establish programs and me-thods or measuring results.

6.3.5 Correct operational processes and systems onthe basis o contributions made by citizens.

6.3.6 Establish ecient systems or addressingand ollowing up on complaints led, and establish

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methodologies or identiying potential vulnerabilitiesand points o risk or acts o corruption in institutionalprocesses.

6.3.7 Establish ongoing orums or consulting withcitizens regarding public security and justice matters.

Strategy 6.4Promote a culture o whistle-blowing on illegalacts, and guarantee the legal security and integrityo whistle-blowers.

Lines o action

6.4.1 Dene and implement policies or handlinginormation and maintaining the condentiality o

inormation associated with whistle-blowing oncorruption committed by public ocials.

6.4.2 Dene and implement clear mechanismsand resources or providing compensation ordamages.6.4.3 Develop strategies and programs or colla-borating witnesses in cases o corruption, and orpromoting the oer and payment o rewards.

6.4.4 Strengthen legal regulations or guarantee-ing the security o whistle-blowers, inormantsand witnesses in general.

Strategy 6.5Establish uniorm criteria in order to prevent dis-cretionary decisions by authorities when applyingstandards..

Lines o action

6.5.1 Identiy cases in which discretionary deci-

sions may occur, as well as potential vulnerabilitiesand points o risk that may acilitate or avor actso corruption in institutional processes.

6.5.2 Update organizational and unctional regu-lations in government oces and institutions in-volved in public security and justice unctions.

6.5.3 Develop manuals and procedures or actionsthat limit the possibilities or discretionary deci-sions by public ocials.

6.5.4 Design and establish protocols or jointactions between public security and justice ins-titutions, in order to clearly indicate the actionscorresponding to the investigation o criminalacts.

6.5.5 Establish computerized systems or the digita-lization o les and communications, by incorporatingadvanced electronic signatures in criminal proceedings.

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6.5.6 Disseminate inormation to society regar-ding the cases o public ocials subject to criminalproceedings or prosecution o acts o corruption,and the sentences received rom those procee-dings, and maintain updated statistical data in co-ordination with the corresponding entities in theederal judicial branch o government.

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Chapter VI. Evaluation and Monitoring System




Chapter VI.Evaluation and Monitoring System

The 2008-2012 National Program on Accountability, Transparency and the Fight Against Corruption contains six major objectives that together are oriented toward generating a positive impact on our speci-

c dimensions o the Federal Public Administration.

These dimensions are:

Structural Procedural Organizational

OBJECTIVES

Cultural perceptual

This involves identi-ying the areas o op-

portunity and specicaspects necessary orstrengthening the le-gal and regulatory ra-mework in terms o transparency, accoun-tability and combatingcorruption.

This involves identi-ying the areas o op-

portunity and specicaspects necessary orstrengthening the ad-ministrative programsthat implement or aci-litate mechanisms oraccountability, trans-parency and anti-co-

rruption mechanisms.

This involves identiyingthe areas o opportunity

and specic aspects ne-cessary or consolidatingan organizational cultu-re within Federal PublicAdministration ocesthat will encourage andacilitate the implemen-tation o and compliancewith provisions relatedto accountability, trans-parency and combatingcorruption.

This involves, on the onehand, identiying the as-pects that will help to de-termine the perceptionand attitudes o citizens inrelation to transparency,accountability and comba-ting corruption, and on theother hand, identiying theelements that may help toormulate a better gover-nment policy or commu-nicating with citizens, andto promote the creation o mechanisms or citizen par-ticipation in these areas.

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On the basis o these dimensions, indicators willbe developed in accordance with each line o ac-tion, to complement those linked to objectives,with the goal o developing a system o indicatorsthat can precisely measure the Program’s strate-gies and objectives.

And based on the indicators or each line o ac-tion, global (aggregate) indicators will be develo-ped or each o the six major objectives.

This entire system o indicators will be comple-mented by a monitoring methodology that will

Process or Determining Aggregate Indicators

Objective Final aggregate score based on theweighing o indexes, by objectives.

Index o Regulatory Strengthening•

Index o Administrative Perormance•

Index o Operational Perormance•

Index o Perception•

The objective o each index will be toevaluate each strategy.

Indexes will be aggregate indicators, bystrategies.

Weighing bystrategies

This is the sum o indicators, by lines

o action.

These are indicators thatmeasure the eectiveness

o lines o action.

Indicators bylines o action

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provide periodic ollow-up to the Program, accor-ding to the dimension, objective, strategy, lineo action, and o course, indicator by indicator,through an electronic platorm. In this way, theconstant monitoring o indicators will acilitateongoing eedback processes with the objective o improving decision-making related to strategiesor accountability, transparency and combating

corruption.

The methodology includes conducting an eva-luation o the indicators system in 2010 and in2012, to then make a genuine, objective com-parison o the Program’s progress at the end o the current six-year administration. It will also bepossible through this instrument to observe thecorrelation o actions carried out.

The monitoring and evaluation processes will becarried out by the Ministry o Public Administra-tion, through the Inter-Sector Commission or

Transparency and Combating Corruption in theFederal Public Administration.

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Glossary




Glossary

BriberyOering, promising or granting a benet with the

intention o unduly infuencing an action or deci-sion by a public ocial or a person who exercisespublic unctions. May be initiated by a person see-king to receive a bribe or a person who oers orpays a bribe. Bribery is probably the most commonorm o corruption.

Corruption

Conduct that deviates rom regulated public ad-ministration, due to personal considerations orin order to obtain monetary benets or upwardmobility, or rom the violation o regulations dueto personal considerations. Reers to actions thatcontradict the State’s legal order and that deviaterom established regulatory criteria.

Citizen MonitoringCitizen mechanisms aimed at veriying, individua-lly or collectively, the correct use o public resour-ces and compliance with government programgoals, based on the applicable legal ramework.

Internal ControlMechanisms aimed at establishing procedures or

assuring compliance with the goals and objectiveso institutions and programs within its respon-

sibility. This makes it possible to obtain reliable,timely inormation and prevent omissions or irre-

gularities that violate the regulatory ramework ornegatively aect ederal assets.

Culture o LegalityImplies that members o a society accept the ruleo law on the basis o their personal convictions,

values, principles and reasoning. They accept andexercise their role as citizens, and recognize and

respect the value, rights and dignity o other citi-zens. In the culture o legality, individuals acceptand adhere to laws—not in response to the threat

o punishment, but because o their personal

convictions.

Rule o LawA State in which authorities and individuals behave

according to legal norms or protecting the rights

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Glossary




and reedoms that are inherent to individuals andshould be applied by impartial, accessible institu-tions that generate certainty.

Public EthicsValues and principles that guide the actions o pu-blic ocials in the exercise o their service, withrespect to their undamental rights and in com-

pliance with their obligations and responsibilities.

Democratic Governability The capacity o government to transorm needsinto policies, in which Public Administrationmaintains its essential responsibility in terms o governance, however changing its practices andinstruments to move rom a centralist model toa model with an open ocus in which it associateswith private and social sectors, making it possibleto ormulate and implement policies with the leastamount o time and eort.

Citizen ParticipationSpaces or mechanisms or interaction among orga-nized groups o society and government, making itpossible or society to contribute and have an im-

pact on the governmental actions it is aected by.

Social AccountabilityMechanism or social control o government, notrelated to elections, and based on public ethics,

transparency and dialogue, in which public o-cials explain and justiy their actions to citizens.

TransparencyA practice or instruments used by organizations tomake inormation public or to make inormation,mechanisms and processes in government admi-nistration and perormance open to the public.

Targeted TransparencyProcess o identication, systematization and dis-semination o inormation that is relevant to thepublic. Targeted transparency seeks to serve as aspace or useul consultation to assist citizens’ de-cision-making regarding public and private goodsand services.

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national program on accountability, transparency, and fighting corruption - 2008-12

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