Abstract
Public procurement refers to the acquisition of goods and services by government in order to facilitate the efficient operationalisation of the state machinery. Public procurement however extends beyond transactions to acquire commodities to “the relationship between the state and its suppliers, and between the state and the commodity transaction”. Global political hierarchies, with affluent democracies at the apex, play a dominant role in how states like Lesotho, with little political agency internationally buy and sell commodities and what terms and conditions attach to such transactions. This paper argues that the architecture of public procurement policy in Africa generally and Lesotho specifically is anchored in neoliberalism which emerged as the dominant economic theory globally after the end of World War II. Corruption which is critical in public procurement because of the huge quantities of commodities often being transacted and the volume of money involved in the procurement process. This creates substantial opportunities for public officials with the propensity to be corrupt because of the high profitability attached to these large procurements. According to the director of the Directorate on Corruption and Economic Offences (DCEO), public procurement in Lesotho is the most vulnerable area to corruption and public procurement cases form 99% of corruption cases handled by the DCEO in 2016. The paper argues that he most combative and dictatorial mechanism of the neoliberal approach to anti-corruption and public procurement policies in Lesotho is the lack of consideration for local contexts, particularly when such policies are adopted litereratim. The slow erosion of corruption, particularly in public procurement in Lesotho is testimony to the futility of neoliberal policies in the country. Officials often adopt neoliberal policies disingenuously and masquerade them as actual reform. Alternatively, policies are adopted to comply with foreign aid requisites or to guarantee Lesotho’s place in global trade. At close inspection, the public procurement legal regime reveals weaknesses which are antithetical to the enthusiastic anti-corruption narratives that the Lesotho government performs to appease donors. Political agents in Lesotho often condemn corruption and reiterate a commitment to corruption-free procurement processes, however, overt corruption that permeates all sectors in the country contradicts this narrative. This paper provides an appraisal of the Public Procurement Regulations of Lesotho as anchored in the neoliberal approach. It argues that the socio-political nuances in Lesotho are in fundamental conflict with the neoliberal theory, making legal enforcement of the regulations extremely difficult.
References
Appolloni, J. and M. Mushagalusa, “Public Procurement and Corruption in Africa: A Literature Review” (2013) April/June, Rivista di Politica Economica.Search in Google Scholar
Arrowsmith, S., J. Linarelli and D. Wallace, Regulating Public Procurement: National and International Perspectives (London: Kluwer Law International, 2000).Search in Google Scholar
Bajo, A., et al, Public Financial Management, Accountability & Citizens Trust, 17 Croatian and Comparative Public Administration, no. 3, available at: <http://bib.irb.hr/datoteka/898926.bajo.pdf>, accessed 21 October 2017.10.31297/hkju.17.3.3Search in Google Scholar
Baum, G., “Beyond the Market: The Growth of the Informal Economy”, in D. Mieth and M. Vidal (eds.), Outside the Market: No Salvation? (London: SCM Press and Maryknoll 1997).Search in Google Scholar
Bedirhanoğlu, P., “Corruption of Anti-Corruption: Deconstructing Neoliberal Good Governance”, in J.A. Scholte, L. Fioramonti and A. Nhema (eds.), New Rules for Global Justice: Structural Redistribution in the Global Political Economy (Washington, D.C: Rowman and Littlefield 2016).Search in Google Scholar
Bhorat, H., et al, Betrayal of the Promise: How South Africa Is Being Stolen (Johannesburg: PARI, 2017), available at: <http://pari.org.za/wp-content/uploads/2017/05/Betrayal-of-the-Promise-25052017.pdf>, accessed 01 November 2017.Search in Google Scholar
Bolton, P., Public Procurement as a Tool to Drive Innovation in South Africa, 19 Potchefstroom Eletronic Journal (2016) available at http://www.scielo.rg.za/pdf/pelj/v19n1/46.pdfaccessed on 27 April 2014.Search in Google Scholar
Bräutigam, D.A. and S. Knack, Foreign Aid, Institutions, and Governance in Sub Saharan Africa, 52 Economic Development and Cultural Change, no. 2 (2004).10.1086/380592Search in Google Scholar
Brousseau, E. and J.M. Glachant, New Institutional Economics: A Tex (Cambridge: Cambridge University Press, 2005).Search in Google Scholar
Bukovansky, M., The Hollowness of Anti-Corruption Discourse, 13 Review of International Political Economy (2006).10.1080/09692290600625413Search in Google Scholar
Bureau of Statistics Lesotho 1, Lesotho Demographic Survey 2011 (Maseru: The Bureau of Statistics, 2013).Search in Google Scholar
Burton, M., et al, “Introduction: Elite Transformations and Democratic Regimes”, in J. Higley and R. Gunther (eds.), Elites and Democratic Consolidation in Latin America and Southern Europe (Cambridge: Cambridge University Press 1992).10.1017/CBO9781139173902.002Search in Google Scholar
Camargo, B.C. and N. Passas, Hidden Agendas, Social Norms and Why We Need to Re-Think Anti-Corruption (Paris: OECD,2017), OECD, available at: <https://www.oecd.org/cleangovbiz/Integrity-Forum-2017-Baez%20Camargo-Passas-hidden-agendas-social-norms.pdf>, accessed 15 October 2017.Search in Google Scholar
Cho, W. and M. Brattonfound, Electoral Institutions, Partisan Status and Political Support in Lesotho [2002], <http://www.sciencedirect.com/science/article/pii/S0261379405001034>, accessed 27 September 2017.Search in Google Scholar
Cobbe, J., The Changing Nature of Dependence: Economic Problems in Lesotho, 21 Journal of Modern African Studies, no. 2 (1983).10.1017/S0022278X00023284Search in Google Scholar
Commonwealth Local Government Forum, Country Profile: Lesotho (London: Commonwealth Local Government Forum,2017), available at: <http://www.clgf.org.uk/lesotho>.Search in Google Scholar
“Corruptions “Public Enemy Number One” in Developing Countries”, The World Bank, 19 December 2013, available at: <http://www.worldbank.org/en/news/press-release/2013/12/19/corruption-developing-countries-world-bank-group-president-kim>, accessed 26 October 2017.Search in Google Scholar
Daley, P., Ethnicity and Political Violence in Africa: The Challenge to the Burundi State, 25 Political Geography, no. 16 (2006).10.1016/j.polgeo.2006.05.007Search in Google Scholar
Earle, A. No Duck No Dinner: How Sole Sourcing Triggered Lesotho’s Struggle against Corruption (2005), available at: <http://www.acwr.co.za/pdf_files/07.pdf>, accessed 16 September 2017.Search in Google Scholar
Earle, A., The Role of Governance in Countering Corruption: An African Case Study, 9 Water Policy (2007), available at: <https://www.researchgate.net/publication/267236555_The_Role_of_Governance_in_Countering_Corruption_An_African_Case_Study>, accessed 12 November 2017.10.2166/wp.2007.131Search in Google Scholar
Eerd, J. Elite-Mass Congruence in African Dominant Party Systems: The Cases of Botswana and Lesotho (2011), available at: <https://www.researchgate.net/publication/260899003_Elite-Mass_Congruence_in_African_Dominant_Party_Systems_The_Cases_of_Botswana_and_Lesotho>, accessed 27 September 2017.Search in Google Scholar
Ekanade, O.V., The Dynamics of Forced Neoliberalism in Nigeria since the 1980s, 1 Journal of Retracing Africa, no. 1 (2014), available at: <http://encompass.eku.edu/jora/vol1/iss1/1>, accessed 17 October 2016.Search in Google Scholar
Ekeh, P.P., Social Anthropology and Two Contrasting Uses of Tribalism in Africa, 32 Comparative Studies in Society and History, no. 4 (1990).10.1017/S0010417500016698Search in Google Scholar
Harrison, G., Economic Faith, Social Project and a Misreading of African Society: The Travails of Neoliberalism in Africa, 26 Third World Quarterly, no. 8 (2005).10.1080/01436590500336922Search in Google Scholar
Huther, J. and A. Shah, Anti-Corruption Policies and Programs (New York: The World Bank, 2001).Search in Google Scholar
Hyden, G., No Shortcuts to Progress: African Development in Perspective (Berkeley and Los Angeles: University of California Press, 1983).Search in Google Scholar
Hyden, G., Why Africa Finds It so Hard to Develop, 4 Nord-Sud Aktuell Themen (2004).Search in Google Scholar
Kapa, A.M., The Politics of Coalition Formation and Democracy in Lesotho, 35 Politikon, no. 3 (2008).10.1080/02589340903017999Search in Google Scholar
Kapa, M. Lesotho, OSISA Effectiveness of Anti-Corruption Agencies in Southern Africa [2017], available at: <https://www.corruptionwatch.org.za/wp-content/uploads/2017/08/osisa_acc_text_29mar1130_web2.pdf>, accessed 29 October 2017.Search in Google Scholar
Karangizi, S.R. and I. Ndahiro, “Public Procurement Reforms and Development in the Eastern and Southern Africa Region”, in R. Hérnandez Garcia (ed.), International Public Procurement: A Guide to Best Practice (London, Globe Law and Business, 2009).Search in Google Scholar
“Khetsi Took M5 million in Bribes”, Lesotho Times 14 November 2013, available at: <http://www.lestimes.com/khetsi-took-m5-million-in-bribes/accessed>, accessed: 26 October 2017.Search in Google Scholar
Lamming, R., Beyond Partnership: Strategies for Innovation and Lean Supply (New York Basingstoke, London: Prentice Hall, 1993).Search in Google Scholar
Leduka, R.C., Chiefs, Civil Servants and the City Council: State-Society Relations in Evolving Land Delivery Processes in Maseru, Lesotho, 28 International Development Planning Review, no. 2 (2006).10.3828/idpr.28.2.4Search in Google Scholar
“Lesotho Government’s New Found Political Will is Welcome, but it Will Not Solve Endemic Corruption”, Pambazuka News, 27 July 2017, available at: <https://www.pambazuka.org/democracy-governance/lesotho-government’s-new-found-political-will-welcome-it-will-not-solve-endemi>, accessed 15 October 2017.Search in Google Scholar
Lesotho Population. (2017-10-27), available at: <http://worldpopulationreview.com/countries/lesotho-population/>, accessed 03 November 2017.Search in Google Scholar
“Lesotho Wrestles with Corruption” Mail & Guardian, 12 December 2014, available at: <https://mg.co.za/article/2014-12-11-lesotho-wrestles-with-corruption>, accessed 26 October 2017.Search in Google Scholar
Majoro, M. Pursuing Fiscal Sustainability within the Context of Political Instability and Insecurity, Budget speech for the year 2017/2018 (Maseru, 2017), available at: <http://www.gov.ls/gov_webportal/documents/Budget%20Speech%202017-2018%20Final.pdf>, accessed 25 October 2017.Search in Google Scholar
Maleleka, D., The Impact of Democracy in Lesotho: Assessing Political, Social and Economic Developments since the Dawn of Democracy (Michigan: Kellog Foundation, 2009).Search in Google Scholar
Mamdani, M., Citizen and Subject: Contemporary Africa and the Legacy of Late Colonialism (Princeton: Princeton University Press, 1996).Search in Google Scholar
Matete v R (C of A (CRI) 4/2010), available at: <https://www.lesotholii.org/ls/judgment/court-appeal/2010/27>, accessed 28 October 2017.Search in Google Scholar
Matlosa, K. Aid, Development and Democracy in Lesotho, 1966–1996 Conference paper presented at the Centre for Southern African Studies, (Cape Town, 21–22 November 1999), available at: <http://citeseerx.ist.psu.edu/viewdoc/download?doi=10.1.1.522.30&rep=rep1&type=pdf>, accessed 29 October 2017.Search in Google Scholar
Metsing v DCEO & Ors, CC11 of 2014, available at: <https://www.lesotholii.org/ls/judgment/high-court/2015/1/>, accessed 03 November 2017.Search in Google Scholar
Ministry of Finance, Public Finance Management Reform Action Plan 2012–2017/18 (Maseru: Government of Lesotho, 2012), available at: <http://www.finance.gov.ls/documents/pfm%20downloads/Lesotho%20PFM%20Reform%20Action%20Plan%20-%20Final%20Final.pdf>, accessed 12 February 2018.Search in Google Scholar
Ministry of Finance (2012), Public Finance Management Reform Action Plan 2012–2017/18 (Maseru: Government of Lesotho,2012), available at: <http://www.finance.gov.ls/documents/pfm%20downloads/Lesotho%20PFM%20Reform%20Action%20Plan%20-%20Final%20Final.pdf>, accessed 12 February 2018.Search in Google Scholar
Mo Ibrahim Foundation, A Decade of African Governance: Lesotho Insights (2016a), available at: <http://s.mo.ibrahim.foundation/u/2017/03/08200225/Lesotho-Insights-2016-IIAG.pdf>, accessed 25 October 2017.Search in Google Scholar
Mo Ibrahim Foundation, Ibrahim Index of African Governance (London, 2016b), available at: <http://mo.ibrahim.foundation/iiag/>, accessed 19 October 2017.Search in Google Scholar
Mulinge, M.M. and G.N. Lesetedi, Interrogating Our Past: Colonialism and Corruption in Sub-Saharan Africa, 3 African Journal of Political Science, no. 2 (1998).Search in Google Scholar
Nyeck, S.N. (ed.), Public Procurement Reform in Africa (New York: Palgrave Mcmillan, 2016).Search in Google Scholar
Ocheje, P.D., When Law Fails: A Theory of Self-Enforcing Anti-Corruption Legislation in Africa, 4 The Law and Development Review, no. 3 (2011).10.2202/1943-3867.1114Search in Google Scholar
Pratchett, L. et al, Local Democracy in Lesotho: Current Strengths and Challenges (2008), available at: <http://www.dmu.ac.uk/research/research-faculties-and-institutes/business-and-law/lgru/local-democracy-in-lesotho-current-strengths-and-challenges.aspx>, accessed 29 October 2017.Search in Google Scholar
“Procurement at the Centre of Corruption”, The Post, 8 December 2016, available at: <https://www.thepost.co.ls/local-news/procurement-at-centre-of-corruption-dceo-boss/>, accessed 17 October 2017.Search in Google Scholar
Public Procurement Regulations, no.1 (2007), available at: <https://www.lesotholii.org/legislation/sl/1-0>, accessed 10 November 2017.Search in Google Scholar
R v Masupha Sole [2001] LSHC 35 and R v Mochebelele & Another [2008] LSHC 41 both cases, available at: <http://www.leslii.com>.Search in Google Scholar
Rosenberg, S., Promises of Moshoeshoe: Culture, Nationalism and Identity in Lesotho (Maseru: National University of Lesotho, 2008).Search in Google Scholar
Søreide, T., Corruption in Public Procurement Causes, Consequences and Cures, 1 Michelsen Institute Development Studies and Human Rights (2002).Search in Google Scholar
Szeftel, M., Misunderstanding African Politics: Corruption and the Governance Agenda, 25 Review of African Political Economy, no. 76 (1998).10.1080/03056249808704311Search in Google Scholar
“Thabane wins most seats in Lesotho elections”, IOL News, 6 June 2017, available at: <https://www.iol.co.za/news/africa/thabane-wins-most-seats-in-lesotho-elections-9575336>, accessed 25 October 2017.Search in Google Scholar
“Thahane Cleared of Another Fraud Case”, Express Sunday, 15 March 201, available at: <http://sundayexpress.co.ls/thahane-cleared-of-another-fraud-case/>, accessed 26 October 2017.Search in Google Scholar
Thahane, T.T. Excellent Progress, but Formidable Challenges Ahead, Budget Speech for the Year 2005/2006, available at: <http://www.finance.gov.ls/documents/budget%20speeches/Budget_Speech_2005.pdf>, accessed 11 February 2018.Search in Google Scholar
Trade and Development Act of 200, available at: <https://agoa.info/images/documents/2/AGOA_legal_text.pdf>, accessed 12 February 2018.Search in Google Scholar
Transparency International, Corruption Perception Index 2016 (2016), available at: <https://www.transparency.org/news/feature/corruption_perceptions_index_2016>, accessed 25 October 2017.Search in Google Scholar
UNCITRAL, Model Law on Public Procurement (2014) available at <https://www.uncitral.org/pdf/english/texts/procurem/ml-procurement-2011/2011-Model-Lawon-Public-Procurement-e.pdf>, accessed on 27 April 2018.Search in Google Scholar
United Nations, United Nations Convention against Corruption, United Nations (2005), New York available at <https://www.unodc.org/documents/treaties/UNCAC/Publications/Convention/08-50026_E.pdf>, accessed on 27 April 2018.Search in Google Scholar
UNODC, Guidance on Anti-corruption in Public Procurement and the Management of Public Finances: Good Practices in Ensuring Compliance with Article 9 of the United Nations Convention against Corruption (2013) available at <https://www.unodc.org/documents/corruption/Publications/2013/Guidebook_on_anti-corruption_in_public_procurement_and_the_management_of_public_finances.pdf>, accessed on 27 April 2018.Search in Google Scholar
Wiggins, J., E. Morachiello and D. Shand, Public Expenditure and Financial Accountability (PEFA) Lesotho (Spain: The European Union, 2012), available at: <https://ec.europa.eu/europeaid/sites/devco/files/report-pefa-assessment-lesotho-201211_en.pdf>, accessed 15 October 2017.Search in Google Scholar
Wittig, W. Building Value through Public Procurement: A Focus on Africa (1999), available at: <http://socialvalueint.org/wp-content/uploads/2016/09/Building-Value-through-Public-Procurement-A-Focus-on-Africa.pdf>, accessed 1 November 2017.Search in Google Scholar
The World Bank, Sub-Saharan Africa: From Crisis to Sustainable Growth, A Long Term Perspective Study (Washington, D.C: The World Bank, 1989).Search in Google Scholar
World Bank, Helping Countries Combat Corruption: The Role of the World Bank (Washington, DC: The World Bank, 2000).Search in Google Scholar
World Bank, Approach Paper: The World Bank and Public Procurement: An Independent Evaluation (Washington, D.C: World Bank, 2012), available at: <http://lnweb90.worldbank.org/OED/OEDDocLib.nsf/DocUNIDViewForJavaSearch/4614C0E10B239D4E85257AD800631376/$file/Procurement_Eval_Approach_Paper_Final_to_CODE__Nov_30_CLEARED.pdf>.Search in Google Scholar
World Bank, World Bank in Lesotho (Washington, DC: World Bank Group, 2017), available at: <http://www.worldbank.org/en/country/lesotho/overview>, accessed, 16 October 2017.Search in Google Scholar
© 2018 Law and Development Review
