If Ukraine Needs Lustration in 2014
By Bohdan
Vitvitsky (Former Federal Prosecutor and Assistant U.S. Attorney, U.S.
Department of Justice; New Jersey, USA)
The two principal rationales for lustration in countries
such as Czechoslovakia, Hungary and Poland that implemented lustration projects
in the 1990s were a fear of penetration by communist or Russian secret services
and a fear that former informers or collaborators of such secret services could
be blackmailed into serving interests other than local national interests.
If Ukraine as represented by the Deputies in the Rada
believes that either or both of such fears continue to be justified in Ukraine
today, then a lustration project that addresses those fears might be
implemented. It should, however, be
understood from the outset that lustration is not the tool for dealing with corruption
or with the absence of integrity and professionalism among public servants.
Although it may be impossible to align a Ukrainian
lustration project with each and every guideline set out by the Council of
Europe, any Ukrainian lustration project should align with as many as possible
both for the obvious reason that Ukraine in general wishes to align with
European standards and because most or all of the European lustration
guidelines are good ideas in and of themselves.
A lustration project in Ukraine should be overseen by a
specially appointed commission of a diverse group of independent public figures
nominated by the president and confirmed by the Rada. Thus a commission of, for example, five
members consisting of individuals who have demonstrated integrity in public or
political affairs throughout their lives would perfectly align with European
guidelines and also serve the Ukrainian public interest well.
Such a commission would need ten to fifteen experienced
investigators on staff that could consist of both criminal investigators and
investigative journalists. Since various
foreign or domestic entities who wish to continue to conceal their activities
would be certain to make every effort to penetrate such a staff, it should be
selected by an outside entity with experience in evaluating effective
investigators.
The lustration project should simultaneously require that
all present and future public servants, from the president to members of the
Rada to every clerk employed by the central or local governments, take or
retake an oath, in both oral and written forms, to Ukraine and its
constitution. The oath should contain
language explicitly stating that the oath taker has not had any non-public
contact or communications of any kind with any foreign government
representatives and, in particular, with any foreign secret service agencies or
their direct or indirect representatives.
Communications of this type are explicitly intended to include any attempts
at blackmail or threats at blackmail whether by domestic or foreign entities. The oath taker would further swear that if
any such contact or communications had taken place prior to the oath or were to
take place subsequent to the oath, the oath taker swears as part of his/her
oath to report this contact or communication to a representative of the
lustration commission. Failure to abide
by any aspect of this oath by a non-elected public servant would result in a
lifetime ban from any public service (and a loss of pension and other
benefits?). A similar violation by an
elected official would result in public exposure by the lustration commission
and a recommendation of resignation. But
with respect to elected officials, and as President Poroshenko has recently
stated on his website, elections are the ultimate form of lustration. Such treatment of elected officials would
also be consistent with European guidelines.
The lustration commission and its investigators would have
to work under very strict rules of confidentiality as it they would have to be
very careful to distinguish between legitimate cases of violations of the
public servant’s oath from fabricated cases or diversionary cases.
This rough sketch leaves many procedural questions
unaddressed not because they are unimportant but simply because this is merely
a preliminary sketch. For example,
questions such as what quantum of evidence would need to be satisfied for the
commission to find that a violation has occurred, or what type of hearing would
be made available to public servants notified that the commission has found a
violation, or under what circumstances could the commission decide that a
violation had occurred but that the national security interests of Ukraine
require that said violation not be exposed are among the many important questions
that would need to be articulated and decided by the Rada if it were to create
a lustration commission.
If a commission were to be created, it should be required to
report to a relevant Rada committee on its activities every six months without,
however, revealing details of any ongoing investigations. After three years, the Rada should perform an
overall review and decide whether the commission’s work should continue or
cease.
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