Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
Esta publicación cientíca en formato digital es continuidad de la revista impresa
ISSN-Versión Impresa 0798-1406 / ISSN-Versión on line 2542-3185Depósito legal pp
197402ZU34
ppi 201502ZU4645
Vol.39 N° 71
2021
ISSN 0798- 1406 ~ De pó si to le gal pp 198502ZU132
Cues tio nes Po lí ti cas
La re vis ta Cues tio nes Po lí ti cas, es una pu bli ca cn aus pi cia da por el Ins ti tu to
de Es tu dios Po lí ti cos y De re cho Pú bli co Dr. Hum ber to J. La Ro che” (IEPDP) de la Fa-
cul tad de Cien cias Ju rí di cas y Po ti cas de la Uni ver si dad del Zu lia.
En tre sus ob je ti vos fi gu ran: con tri buir con el pro gre so cien tí fi co de las Cien cias
Hu ma nas y So cia les, a tra vés de la di vul ga ción de los re sul ta dos lo gra dos por sus in ves-
ti ga do res; es ti mu lar la in ves ti ga ción en es tas áreas del sa ber; y pro pi ciar la pre sen ta-
ción, dis cu sión y con fron ta ción de las ideas y avan ces cien tí fi cos con com pro mi so so cial.
Cues tio nes Po lí ti cas apa re ce dos ve ces al o y pu bli ca tra ba jos ori gi na les con
avan ces o re sul ta dos de in ves ti ga ción en las áreas de Cien cia Po lí ti ca y De re cho Pú bli-
co, los cua les son so me ti dos a la con si de ra ción de ár bi tros ca li fi ca dos.
ESTA PU BLI CA CIÓN APA RE CE RE SE ÑA DA, EN TRE OTROS ÍN DI CES, EN
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Re vicyhLUZ, In ter na tio nal Po li ti cal Scien ce Abs tracts, Re vis ta In ter ame ri ca na de
Bi blio gra fía, en el Cen tro La ti no ame ri ca no para el De sa rrol lo (CLAD), en Bi blio-
gra fía So cio Eco nó mi ca de Ve ne zue la de RE DIN SE, In ter na tio nal Bi blio graphy of
Po li ti cal Scien ce, Re vencyt, His pa nic Ame ri can Pe rio di cals In dex/HAPI), Ul ri chs
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nes Cien tí fi cas y Tec no ló gi cas Ve ne zo la nas del FO NA CIT, La tin dex.
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Co mi Edi tor
Eduviges Morales Villalobos
Fabiola Tavares Duarte
Ma ría Eu ge nia Soto Hernández
Nila Leal González
Carmen Pérez Baralt
Co mi Ase sor
Pedro Bracho Grand
J. M. Del ga do Ocan do
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Re vis ta Cues tio nes Po lí ti cas. Av. Gua ji ra. Uni ver si dad del Zu lia. Nú cleo Hu ma nís ti co. Fa-
cul tad de Cien cias Ju rí di cas y Po lí ti cas. Ins ti tu to de Es tu dios Po lí ti cos y De re cho Pú bli co
Dr. Hum ber to J. La Ro che. Ma ra cai bo, Ve ne zue la. E- mail: cues tio nes po li ti cas@gmail.
com ~ loi chi ri nos por til lo@gmail.com. Te le fax: 58- 0261- 4127018.
Vol. 39, Nº 71 (2021), 972-985
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
Recibido el 14/09/2021 Aceptado el 03/11/2021
Anti-corruption mechanism in Ukraine:
content actualization under the conditions
of normative innovations
DOI: https://doi.org/10.46398/cuestpol.3971.59
Serhii V. Kivalov *
Abstract
The aim of the investigation was to determine the most
appropriate avenues for further implementation of the European
concept of anti-corruption. To carry out this article, general and
special research methods have been applied, such as systems
analysis, dialectical, formal logical and structural functional
methods, as well as a series of empirical methods. Statistical
analysis has been used to demonstrate anti-corruption measures,
undertaken in 2016 - 2020. The anti-corruption mechanism has
been analyzed through the prism of combined institutional and
instrumental systems, with the aim of preventing corruption. The priorities
for transforming the anti-corruption mechanism have been dened as
follows: (a) increased accountability for corruption oences; (b) introduction
and appropriate application of corruption detection tools. It is concluded
that the current trend demonstrates a decline in the implementation of
anti-corruption preventive tools in Ukraine due to the following factors:
change of the vector of public interest towards compliance with anti-
Covid-19 measures, destabilization of authority and lack of collaboration
between authorized subjects in solving corruption problems.
Keywords: anti-corruption mechanism; measures to combat corruption;
institutional system; public sector; lifestyle of the reporting
subjects.
* Academician, National Academy of Pedagogic Sciences of Ukraine, Academician, National Academy of
Law Sciences. ORCID ID: https://orcid.org/0000-0002-4651-1805.
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CUESTIONES POLÍTICAS
Vol. 39 Nº 71 (2021): 975-985
Mecanismo anticorrupción en Ucrania: actualización
de contenidos bajo las condiciones de innovaciones
normativas
Resumen
El objetivo de la investigación fue determinar las vías más adecuadas
para una mayor implementación del concepto europeo de lucha contra la
corrupción. Para llevar a cabo el presente artículo se han aplicado métodos
de investigación generales y especiales, como el análisis de sistemas, los
métodos dialécticos, lógicos formales y funcionales estructurales, así como
una serie de métodos empíricos. El análisis estadístico se ha utilizado para
demostrar las medidas anticorrupción, emprendidas en 2016 - 2020. El
mecanismo anticorrupción se ha analizado a través del prisma de sistemas
institucionales e instrumentales combinados, con el objetivo de prevenir la
corrupción. Las prioridades para transformar el mecanismo anticorrupción
se han denido de la siguiente manera: a) aumento de la responsabilidad
por delitos de corrupción; b) introducción y aplicación adecuada de
herramientas de detección de corrupción. Se concluye que la tendencia
actual demuestra un declive en la implementación de herramientas
preventivas anticorrupción en Ucrania debido a los siguientes factores:
cambio del vector de interés público hacia el cumplimiento de las medidas
anti-Covid-19, desestabilización de la autoridad y la falta de colaboración
entre sujetos autorizados en resolver problemas de corrupción.
Palabras clave: mecanismo anticorrupción; medidas para combatir la
corrupción; sistema institucional; sector público; estilo
de vida de los sujetos declarantes.
Introduction
The need to discover eective tools to counteract corruption is primarily
determined by the following factors: 1) reducing the negative impact from
corruption on the country’s economy; 2) boosting the population’s trust
in public sector; 3) improving Ukraine’s image as a democratic, rule-of-
law and social state, seeking EU membership. The latter factor is further
substantiated by the necessity to fulll the commitments provided for by the
Association Agreement between Ukraine and the European Union (2014).
The anticipated eect in counteracting corruption has failed to occur
despite the legislative changes of basic character introduced in 2014 [(Law
No. 1700-VII. 2014), legalization of lustration to protect and reinforce
democratic values (Law No. 1682-VIII, 2014), as well as institutional [the
establishment of: the National Agency for the Prevention of Corruption
974
Serhii V. Kivalov
Anti-corruption mechanism in Ukraine:content actualization under the conditions of normative
innovations
as the central body of executive power with a special status (Resolution
No. 118, 2015), the National Anti-Corruption Bureau of Ukraine (Law
No. 1698-VII, 2014), Specialized Anti-Corruption Prosecutor’s Oce of
the Oce of the Prosecutor General (Order No. 125, 2020), the Supreme
Anti-Corruption Court (Law No. 2447-VIII. 2018.)]. However, it should be
noted that the available positive trends in the formation of eective anti-
corruption mechanism is essential for the further intensication of work in
this direction.
The need for specifying the national model of anti-corruption mechanism
in correlation with the generally recognized European standards is
conditioned by the absence of anti-corruption strategy, accounting for
challenges of Covid-19 pandemic (Kivalov, 2020), rapid development of IT
technologies and application thereof for administration and management
(Hnatovska, Manzhosova, Marushchak, & Oleksiy, 2019), and the national
archetype of the civil society in Ukraine (Bila-Tiunova, Bilous-Osin,
Kozachuk, & Vasylkivska, 2019).
The lack of approved anti-corruption strategy serves as the destabilizing
factor for the formulation of eective anti-corruption mechanism. The latest
document of this nature was formally and legally approved in 2014 (Law
No. 1699, 2014); the similar document for 2018-2020 has been drafted but
not adopted instead (Draft Law No. 2017, 2017).
Presently, a new draft of state anti-corruption policy for 2020-2024 is
available although it has not been approved either (Draft Law No. 2020,
2020). Accounting for the above-mentioned, the lack of unity in the relations
of public authorities should be mentioned: President of Ukraine is in favor
of stricter liability for corruption (Oce of the President of Ukraine, 2021)
whereas the National Agency for the Prevention of Corruption insists on
the intensication of the available anti-corruption means. Thus, corruption
prevention remains an acute problem for Ukraine and the current
challenges dictate the rules to secure constant improvement of the chosen
anti-corruption preventive approaches.
1. Theoretical Framework or Literature Review
The sphere of anti-corruption activities is characterized by its special
signicance for the state and the operation of its bodies as well as for the
society at large.
The aim, pursued in this sphere determines the scope of the relations
of the entities engaged in anti-corruption activities, the need in the most
exible instruments tested by the international community (Organization
of American States, 1996; General Assembly, 1996; United Nations, 1997;
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Vol. 39 Nº 71 (2021): 975-985
United Nations, 2003). The combating corruption issue and the formulation
of an ecient anti-corruption mechanism is an on-going issue; however,
the constant evolution of social relations requires taking into consideration
the new challenges posed by digitalization and humanization.
The main idea of corruption prevention dialectically lies in the following
domain: 1) prevention of an oense; 2) prevention of arbitrariness on the
part of ocials, authorized to perform the functions of state power and
local self-government. The former presumes the following criminological
postulates: corruption oenses are rational (a non-deliberate corruption
oense is impossible); prevention of corruption becomes possible due to
the elimination of potential prot from corruption; reducing the eect
from prot may occur due to the risk of the oense being revealed and the
forthcoming bringing to liability (Khamkhodera, 2020b).
Thus, the corruption preventive mechanism may eventually be
transformed through the following: a) enhanced liability for corruption:
b) introduction and proper implementation of anti-corruption tools. The
present research is focused on the latter.
Investigation of the issue of anti-corruption mechanism requires
clarity in the approaches to its component parts, which is common to the
activities in public sphere and non-managerial sphere Mykhailenko, 2017;
112). They include: 1) state anti-corruption policy, aimed at the creation of
ecient detection of preconditions for the prevention, counteraction and
removal of consequences of corruption oenses (Hudkov, 2018), which will
facilitate the emergence of positive archetypes of the society; non-tolerance
of corruption; 2) anti-corruption declaring as a complex of organizational
and formal legal actions to secure the obligation of nancial reporting,
detection of violations of nancial discipline and the implementation of
administrative liability to physical persons, responsible for the violation of
nancial control requirements (Khabarova, 2017); 3) conict of interests as
the means of corruption prevention; 4) institutional system of combating
corruption, based on the operation of specialized bodies of public authority,
focused on anti-corruption measures; 5) lifestyle monitoring, aimed at
revealing the correspondence between the living standards and the incomes,
stated in the declaration.
Certain conclusions of academic nature might be of interest. They
concern criteria of acceptability, contextual and applied motivation,
exemption from liability for minor violations related to the conict of interest
(Khamkhodera, 2020a); specicity of anti-corruption declaring in Ukraine,
manifested in: aiming at the prevention and detection of corruption and
violation of anti-corruption requirements, prohibitions and restrictions; it
is aimed at the verication of the nancial status of the entities liable to
anti-corruption laws; failure to observe anti-corruption declaring stipulates
enforcement of liability measures, etc., (Kornuta et al., 2020).
976
Serhii V. Kivalov
Anti-corruption mechanism in Ukraine:content actualization under the conditions of normative
innovations
The present article researches into the anti-corruption mechanism
as a combination of institutional and instrumental systems, aimed at
counteracting corruption in public and private sectors. For consistent
highlighting of the problem the author indicates the key aspects,
which characterize the homogeneous group of social relations, dealing
with combating corruption, establishing the model of anti-corruption
mechanism; dening content features of lifestyle monitoring and the
procedure of its implementation; dening the institutional system of
corruption counteracting.
2. Methodology
General and special methods of academic cognition have been applied in
this research, namely system analysis, dialectical method, formal logical and
structural functional methods, as well as a number of empirical methods.
The method of systematic analysis was used by the author of the article
to carefully study the current anti-corruption legislation of Ukraine in
terms of its eectiveness. It is this method that led to the conclusion about
the gaps in the current legislation of Ukraine, due to which the reduction
of corruption is not fast enough. In particular, there is a lack of a clear
procedure for monitoring the lifestyle of the subjects of the declaration.
The dialectical method, as a way of knowing objective activity in its
development, allowed the author to study such a phenomenon as corruption
in its development in accordance with the stages of state and society, and to
propose tools to combat corruption, based on the modern period of social
development. In particular, it is said that the normative consolidation of
responsibility for corrupt acts alone is no longer enough, and the mechanism
for detecting and counteracting corrupt acts in accordance with the best
world standards needs to be improved.
Formal-logical method, as one that provides logical consistency and
consistency of legal norms, helps to track the presence of the necessary
internal elements in the formulation of concepts, as well as deriving
logical consequences, helped the author to formulate general conclusions
of the study, according to which the priority directions of transformation
of the mechanism for prevention of corruption are: a) enhancement of
responsibility for commission of corruption oenses; b) implementation
and proper application of tools aimed at detecting corruption.
The structural-functional method, which consists in the systematic
study of social phenomena and processes as a structurally dismembered
integrity, where each element of the structure has a specic functional
purpose, helped the author to conclude that there is no positive eect of a
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CUESTIONES POLÍTICAS
Vol. 39 Nº 71 (2021): 975-985
modern institute of monitoring the lifestyle of civil servants.
3. Results and Discussion
The research contains statistical analysis of specic anti-corruption
measures, applied by the authorized anti-corruption bodies in 2016-2020.
(Decision No. 32, 2017; Decision No. 2017, 2017; Decision No. 2018,
2018; Decision No. 2019, 2019; Decision No. 2020, 2020) of the following
activities: comprehensive revisions, lifestyle monitoring, detection of
violations in declarations, processing of reported cases on resolving
conicts of interest and related restrictions and bringing to administrative
liability for violations in declarations (Table 1).
Year 2016 2017 2018 2019 2020
Anti-corruption measure
Comprehensive revisions 11 30 35 54 80
Lifestyle monitoring - - - - 47
Detection of violations in declarations 1700 18700 17000 23000 16000
Reported cases on resolving conicts
of interest and related restrictions
456 1577 1280 1500 2842
Bringing to administrative liability for
declaration violations
11 49 310 371 128
Table 1. Quantity indices of the application of certain anti-
corruption measures in 2016-2020, data provided by Report
on the activities of the National Agency for the Prevention of
Corruption, 2020.
Thus, the following tendencies have been revealed: the number of
comprehensive revisions reached its maximum in 2020 and is growing every
year; lifestyle monitoring was initiated in 2020 and immediately reached
its average quantity level; the number of detected declaration violations
is characterized by constant uctuations, reaching its maximum in 2019,
however 2020 revealed comparatively small number of such violations;
reported cases of resolving conicts of interest and related restrictions show
stable growth, proving the tendency of qualitative change in applying this
anti-corruption measure; cases of bringing to administrative liability for
978
Serhii V. Kivalov
Anti-corruption mechanism in Ukraine:content actualization under the conditions of normative
innovations
declaration violations reached their maximum in 2019 and reduced three
times in 2020, which correlates with the number of detected declaration
violations.
Reduction in the positive tendencies of implementing preventive anti-
corruption measures could be explained by such factors as: intensied
measures against Covid-19 pandemic, which resulted in the destabilization
of public authorities ecient operation; the Constitutional Court of
Ukraine ruling stating that certain provisions of the Law of Ukraine “On
the Prevention of Corruption” (Law No. 1700-VII, 2014) and the Criminal
Code of Ukraine (Law No. 2341-III, 2001), particularly the anti-corruption
declaration provisions contradict the Constitution, and provisions on
amending the Law of Ukraine “On the Prevention of Corruption” concerning
the specic status of judges and Constitutional Court Justices as subjects,
liable to preventive anti-corruption measures (Law No. 1079-IX, 2020).
Anti-corruption declaring is an established anti-corruption mechanism;
however, due to certain objective reasons it has been losing its initial
signicance. The pattern of revealing signs of corruption was formally
changed by the Law of Ukraine «On the Amendments to the Law of
Ukraine ‘On the Prevention of Corruption’ Concerning the Restoration
of the Institutional Mechanism for the Prevention of Corruption» (Law
No. 1079-IX, 2020). These amendments resulted in recognizing as anti-
constitutional certain provisions of anti-corruption laws as well as the
Law of Ukraine «On Amendments to Certain Legislative Acts of Ukraine
Concerning Ensuring the Eectiveness of the Institutional Mechanism for
Preventing Corruption» (Law No. 140-IX, 2019). The elements of the anti-
corruption mechanism, which have been amended, are the following:
1) the legal status of the National Agency for the Prevention of
Corruption has been changed in the part of its identity as a body,
headed by Chairman, appointed by the Cabinet of Ministers, rather
than a collegial body of ve members as it used to be.
2) there was established a new provision involving a new subject
authorized to exercise nancial anti-corruption control (timely
submission, correct and full declaring) who is an authorized unit
(authorized ocial) of a state body or a military unit, exercising
control over the subordinate sta, referred to Intelligence Service of
Ukraine and/or whose activities involve state secrets (resulting from
investigative, intelligence and counter-intelligence activity) and also
over ocials, seeking such positions, or those who have resigned.
3) the new provisions regarding applying anti-corruption instruments
(comprehensive revision, lifestyle monitoring) to judges and
Constitutional Court Justices have been made. The measures should
be applied according to the following procedure: a) obtaining
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CUESTIONES POLÍTICAS
Vol. 39 Nº 71 (2021): 975-985
approval from the Supreme Council of Justice or Constitutional
Court Justices assembly; b) immediate notication of the Supreme
Council of Justice and the Chairman of the Constitutional Court
about the start of a comprehensive revision or lifestyle monitoring;
c) submitting the results of the applied anti-corruption measures in
the report, approved by the Chairman of the National Agency for
the Prevention of Corruption or his/her Deputy; d) granting judges
or Constitutional Court Justices an opportunity to inform about the
attempts to exercise unlawful inuence, pressure, or interference
into judicial activity undertaken by the sta of the National Agency
for the Prevention of Corruption, Supreme Council of Justice or
Constitutional Court Justices assembly.
4) introduction of the order of priority for submitting declarations to
ensure comprehensive revision and notifying the subject of declaring
about putting him/her on the list, etc.
Altogether, the designated changes do not characterize the current model
of the anti-corruption mechanism, which is aimed at detecting corruption.
On the contrary, they create a temporal opportunity of continuance of the
abeyance of corruption oences.
Regarding the application of such a tool to prevent corruption as
monitoring the lifestyle of the declarants, the positive eect of this novelty
of anti-corruption legislation has not been corroborated in practice due
to the following factors: 1) since the introduction of this measure of anti-
corruption nancial control, the procedure for monitoring lifestyle has
not been adopted; 2) the lack of dierentiation of certain aspects of the
application of lifestyle monitoring to specic subjects of declaration,
which is associated with the specics of their functions; 3) accompanying
phenomena that indirectly aected the lack of priority in solving the issues
of lifestyle monitoring (e.g., lack of constructive cooperation between anti-
corruption state bodies and judicial bodies, increased social and political
tensions in connection with the spread of Covid-19 pandemic, etc.).
Emphasis should be placed on the lack of the procedure of monitoring the
lifestyle of the declarants. Initially, an attempt to introduce a normatively
established procedure for monitoring lifestyle was recorded in 2017 in
the form of a draft decision of the National Agency for the Prevention of
Corruption (Draft Decision No. 13, 2017). In response to the request to the
National Agency for the Prevention of Corruption regarding the existence
of adopted regulations relating to the application of lifestyle monitoring of
March 12, 2021, the response was provided, the text of which testies to the
following: a) monitoring the lifestyle of declaring entities is carried out in
accordance with the provisions of the Law of Ukraine «On the Prevention
of Corruption» in Art. 12, 13, 514 (LAW No. 1700-VII, 2014); b) by-laws on
the mechanism of application of lifestyle monitoring have not been adopted
(Response No, 2021, 2021)1.
980
Serhii V. Kivalov
Anti-corruption mechanism in Ukraine:content actualization under the conditions of normative
innovations
This position of the National Agency for the Prevention of Corruption
regarding the lack of the need to adopt a separate procedure for monitoring
lifestyle can be justied by the wording of Part 3 of Art. 514 of the Law of
Ukraine «On the Prevention of Corruption»: «The procedure for monitoring
the lifestyle of the subjects of the declaration is determined by the National
Agency» (LAW No. 1700-VII, 2014). That is, the legislator used the wording
‘determined’, which does not require the adoption of the relevant legal act.
Instead, in the case of the use of the wording ‘approved’ - this is mandatory,
e.g., as stated in Part 4 of Art. 14 or Part 2 of Art. 37 of the Law of Ukraine
«On the Prevention of Corruption» (LAW No. 1700-VII, 2014). Evidently,
this argument does not mean that the existence of a normative procedure
for monitoring the lifestyle of the declarants will not promote the principles
of the rule of law and good governance in the practice of preventing
corruption, but allows to carry out these activities without regulatory detail.
As a result, since 2020 Ukraine has been monitoring the lifestyle
of declaring entities, but with some caveats. It is a question of limited
application of this anti-corruption tool to judges of general courts and
Justices of the Constitutional Court of Ukraine. The groundbreaking
decision of the Constitutional Court of Ukraine on the inconsistency of
certain provisions of the Law of Ukraine «On the Prevention of Corruption»
(Decision No. 13-r / 2020, 2020) with the Constitution did not allow for the
application of lifestyle monitoring to the subjects of the declaration among
the judiciary, including of the Constitutional Court of Ukraine.
An attempt to rectify the situation was embodied in a draft decision of
the National Agency for the Prevention of Corruption, which approved the
procedure for monitoring the lifestyle of a judge (Decision No. 281/0/15-21,
2021). However, the High Council of Justice commented on the proposed
draft on the grounds of the absence of such a model of relations that would
exclude undue pressure, inuence or control by the executive or legislature
on the judiciary and prevent the emergence of regulations that will allow to
control the judiciary at the legislative level. Among the main shortcomings
of the procedure are: lack of denition of a clear procedure for monitoring
the lifestyle of judges, lack of indication of deadlines and requirements
for verication of information on the basis of which monitoring of judges’
lifestyle begins (Decision No. 281/0/15-21, 2021).
It is obvious that the substantive characteristics of monitoring the
lifestyle of the subject of the declaration as a tool to prevent corruption,
etymologically makes it impossible to resolve these aspects. Therefore, the
tactics of positioning civil servants – representatives of the judiciary as
a group of entities to which anti-corruption measures should be applied
in a special and radically contradictory manner in the long run will be
insignicant from the point of view of its perception by the international
community. A similar situation concerns the removal of an assistant judge
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from the list of subjects of declaration in general in accordance with the
Law of Ukraine ‘On Intelligence Service’ (LAW No. 912-IX, 2020.).
Conclusions
The article investigates the anti-corruption mechanism in terms of a
combination of institutional and instrumental systems aimed at preventing
corruption in the public and partly private sector. It has been established that
the priority directions of transformation of the mechanism for prevention
of corruption are: a) enhancement of responsibility for commission of
corruption oenses; b) implementation and proper application of tools
aimed at detecting corruption.
The reductive tendencies of positive practice of application of preventive
tools for corruption prevention in Ukraine have been revealed. Vector
changes in the anti-corruption mechanism that create a temporal possibility
of continuing the latency of corruption oenses are identied. It is noted
that the positive eect of the introduction of monitoring the lifestyle of the
subjects of the declaration has not been corroborated in practice due to
the following factors: 1) from the moment of introduction of this measure
of anti-corruption nancial control until now, the order of carrying out
monitoring of lifestyle has not been adopted; 2) the lack of dierentiation
of certain aspects of the application of life monitoring to specic subjects
of declaration, which is associated with the specics of their functions; 3)
accompanying phenomena that indirectly aected the lack of priority in
resolving problematic issues in the application of lifestyle monitoring.
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innovations
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