Legislature integrity systems: personal and ethical dimensions of anticorruption measures in the most senior levels of public service

A National Integrity System (NIS) is the system of structural and behavioural features intended to improve accountability for conduct and reduce risks of corrupt behaviour, thereby improving the efficiency and effectiveness of public administration. In a contemporary democracy Parliament is a key pillar of the NIS. The ethical conduct of a parliament's members (MPs) is fundamental to the institution's performance of its functions, including the scrutiny and oversight of executive government. This conduct in turn flows through to affect the integrity, efficiency and effectiveness of executive government's public administration. Assurance that members are conducting themselves ethically requires that they are accountable for their conduct, which in turn requires that there is transparency around that conduct. This paper reports original research into codes of conduct (and equivalents) as measures to reduce the risks of unethical conduct by MPs. A survey of Commonwealth Parliamentary Association national and subnational (state/provincial/territory) member parliaments provided basic data on codes of conduct (if any) and their major features. This data was used to select a representative sample of parliaments from which MPs and Clerks or other senior staff were requested to be interviewed at the 60th Commonwealth Parliamentary Conference (October 2014, Cameroon). These interviews provided rich data on the detailed features and functioning of codes and associated measures such as anti-corruption agencies. Analysis of the survey and interview data provides a comprehensive account of the operation of what is described as the Parliamentary Integrity System including factors affecting its effectiveness. Many parliaments adopt codes of conduct, including disclosure and publication of assets, liabilities and affiliations which could give rise to conflicts of interest. Wide variations in such codes are described in approaches to ethical conduct, including the nature and extent of accountability, transparency, the availability of independent ethical advice, enforcement and sanctions for breaches. The culture which prevails amongst a parliament's MPs is a key feature of a Parliamentary Integrity System, as it affects the interpretation of a code, its practical observance and hence its effectiveness. We outline some cultural influences on adoption. Benchmarks for the content, structure and implementation of codes of conduct for MPs are proposed. These form key components of the Parliamentary Integrity System and contribute to the National Integrity System, supporting the integrity, efficiency and effectiveness of executive government's public administration.