Michael Young in an interview, with David Linfield who argues that international donors are benefiting existing power structures in the Middle East. It is all about Colluding With the Corrupters.
Corruption spread deep and for some time in the MENA region with social, political, and economic implications, but with differing penetrations rates. All because the area can divide into two types of governance. The autocratic monarchies live with side by side with the so-called republics. Few of these latter countries know a higher degree of corruption than the first-mentioned countries. In any case, all have made the fight against corruption a priority by passing laws and adopting strategies to combat crime. But in vain. Colluding with the Corrupters could quickly summarise a situation where such deviant behavioural attitudes originators can be traced back out of the region.
January 29, 2021
David Linfield is a visiting scholar in Carnegie’s Middle East Program. He is on sabbatical from the U.S. Department of State, where he is a career foreign service officer. Linfield recently wrote a commentary for Carnegie, titled “International Donors Are Complicit in Middle Eastern Elites’ Game.” In mid-January, Diwan interviewed him to discuss his article, and more generally to examine the anti-elite feeling that has permeated protests throughout the Middle East in the past year, notably in Iraq, Jordan, and Lebanon. The views expressed by Linfield are his own and not necessarily those of the U.S. government.
Michael Young (MY): You’ve just written a commentary for Carnegie, titled “International Donors Are Complicit in Middle Eastern Elites’ Game.” What is your argument in the piece?
David Linfield (DL): My argument is that the United States and other international donors have put significant clout and resources behind promoting economic liberalization in the Middle East, while they have been hesitant to put similar emphasis on political reforms. By political reforms I mean boosting transparency, combating corruption, and empowering elected officials. International actors have partly justified this approach by suggesting that economic reforms are a better way of promoting stability and less risky than political changes. But I contend that recent events in the region suggest that these policies are making violent, sudden change in the region more likely, not less so.
When adopted in the context of authoritarian political systems, economic reforms such as privatization have tended to benefit existing power structures, exacerbating economic inequality and citizen-state tensions. The World Inequality Database now ranks the Middle East as the most unequal region in the world. While economic inequality has decreased worldwide since the 1990s, it has remained constant in the Middle East.
By supporting policies that have inadvertently led to such entrenched inequality, while neglecting political reforms, international donors have contributed to citizens’ frustrations with their relative economic status while leaving them without peaceful institutional means of expressing their grievances. This is all a recipe for instability, which is the opposite of what donors want.
MY: You write that “[e]merging solidarity among previously competing groups, grounded in [economic inequality]” is a feature of the growing resentment of elites in the Middle East. Are you suggesting, to borrow from Marxist jargon, that we are seeing the emergence of a sort of class consciousness in certain countries that may have revolutionary potential?
DL: Most of the protests in the Middle East since 2018 have focused on economic inequality and corruption. Whereas previous demonstrations in the region tended to consist of a homogeneous ethnic group—whether from a particular religious sect, region, or group of tribes—these recent protests have been more diverse.
Common frustrations with inequality appear to have led people from lower-income communities to demonstrate in common cause—albeit sporadically and tentatively—against what they see as a corrupt and multisectarian elite that has failed them. We have seen this happen most explicitly in Iraq, Jordan, and Lebanon.
Some of the slogans used in recent protests in these countries do indicate the emergence of class consciousness. When the Jordanian Teachers Union threatened to strike in summer 2020, they framed their plight as a class struggle against those who had “looted the country.” The 2019 Lebanese protests included slogans like “down with the rule of the thieves.” Iraqi protestors in 2019 and 2020 told media outlets that their struggle was about taking the country back from “thieves.”
MY: In light of your assessment, how have the traditional fault lines among Middle Eastern populations that regimes have manipulated to retain power—things such as sectarian, tribal, or regional divisions—fared in what you describe as a changing environment?
DL: The traditional fault lines in Middle Eastern societies are still very much present. Emerging class-based tensions have not fully supplanted preexisting divisions based on ethnicity, religion, and tribalism, but rather now coexist alongside them more than before. That said, the trendlines I described earlier suggest that class-based divisions will continue to grow in relative importance and have the potential to reshape existing political alliances and divisions.
In addition to the demonstrations I mentioned earlier, another indicator of the power of class solidarity is a 2019 experiment by researchers from the University of Pittsburgh and the Lebanese Center for Policy Studies. The study, which assigned hundreds of Lebanese people into different conversation groups having varying compositions based on sect and class, found that when Lebanese people gathered with other members of the same class, they exhibited markedly less support for sectarian politics.
It’s too early to craft a comprehensive assessment of how emerging class-based tensions will interact with longer-standing societal divisions in the Middle East. One reason that we’ll have to observe for a longer period is that Covid-19 shifted the focus dramatically from political and economic challenges to the health crisis. But given that the pandemic exacerbated economic inequality, with lower-income communities bearing the brunt of related economic disruptions, we probably won’t have to wait long before class discussions reemerge.
MY: If the problem is that economic liberalization has reinforced elites, what are you recommending as an alternative approach by Western donors? And what makes you think that such an approach would have any chance of working?
DL: The alternative approach I’m recommending is for international donors to incorporate measures to promote transparency and combat corruption into existing economic liberalization efforts. These political reforms are also good for business and economic growth—as noted by the International Monetary Fund (IMF) and World Bank reports I cite in my article. The IMF’s recent insistence that Lebanon address corruption before receiving additional loans is a positive step to putting teeth behind their analysis.
Other helpful steps would include pushing to empower the many weak legislatures across the region beyond their current rubber-stamp roles, which would provide an alternative to protests for frustrated publics. If international donors put the same clout behind good governance that they have behind economic liberalization, they’ll make peaceful and durable progress more likely in the Middle East.
MY: Are you not reading too much into anti-elite solidarity? Ultimately, states in the region have shown that they will resort to violence in order to survive and societies have often gone back to being silent. Why will this change?
DL: Ruling elites in the region have demonstrated that they are willing to go to extreme measures to maintain their benefits. I am not suggesting that elites will somehow decide that they should altruistically begin to share resources with the rest of society. Rather, as your question implies, I am arguing that the elite behavior of concentrating power and resources is an unsustainable strategy that will ultimately foment violence and harm everyone’s interests, including those of the elite.
Autocratic regimes tend to resort to violence when they feel they have run out of other options, but rely more often on nonviolent coercion and intimidation to maintain daily control. By the time regimes turn to violence, it tends to be a prelude to their loss of control—or a stage where they are nearing that.
The strategy of international donors focusing their influence and resources on economic liberalization instead of good governance has not succeeded in bolstering stability and strengthening citizen-state relations. Instead, the policy has exacerbated class-based tensions and increased the prospects of unrest.
These trends are not linear: demonstrations in the region against economic inequality and corruption have ebbed and flowed. Ruling elites remain intent on doing everything they can to outmaneuver these latest challenges to their vested interests. Longer-standing societal tensions based on sect, region, and tribe also continue to simmer and remain exploitable by elites. But the overall direction of the region is still toward economic liberalization in the midst of authoritarian entrenchment. As long as that remains the case anti-elite solidarity is likely to build. International donors are inadvertently contributing to these increasing citizen-state tensions. Instead, they could be fostering more durable change that would make the region more stable and prosperous for everyone.
Corruption and Predation in Exercising Power: Algeria and Iraq as Case Studies by Nahla Chahal, Professor and researcher of political Sociology, Editor in Chief, Assafir Al Arabi.
All throughout 2020, Assafir al Arabi conducted a study on corruption as one of the pillars of power, just as important as repression, impoverishment, and despair. For such exercise, we chose Algeria and Iraq as case studies, hoping to extend our research to include other countries. This work will appear in the Books of Assafir al Arabi in three languages, Arabic, French, and English, and their online versions.
The following studies seek to examine corruption in Algeria and Iraq. They do not tackle its manifestation as bribes or looted public funds, but rather as a major governance mechanism, an essential part of its structure and operations.
Corruption is no self-treatable symptom; it cannot cure itself nor can its tailored arrangements; rather, it is channelled to empower a ruler(s), to sustain and perpetuate their power and hegemony. It could be more effective than oppression; takes on various shapes and forms; attacks society by taming it into submission, talks people out of pursuing change, and impoverishes them.
Corruption infests everything and partners with many people to various extents. Alternately, it asks for their complicity, or their acceptance thereof, at the very least, to simplify their lives. It remunerates certain social strata in particular, which happen to be fused with the ruling powers, for matching ideological considerations at times, and tribal-sectarian affiliations at others.
Numerous studies tackle corruption as a question indicative of imprudent governance, lack of transparency, collapsed mechanisms of oversight and accountability, or faded rule of law. The question of corruption has been widely contextualised in theory and through international standards outlined by organisations like the World Bank, the International Monetary Fund, and Transparency International. Those focused on nepotism, theft, and lining influential people’s pockets; they proposed measures to protect whistle blowers, enhanced access to information, made way for civil society, and instilled social accountability; all of which have contributed to the creation of an extensive useful database.
But to focus on those alone would be limiting, as they capture neither dynamics nor functions of corruption. Certainly, all such aspects of corruption must be interconnected somehow, given meaning and rendered a real “configuration”. The studies presented here precisely seek to examine such hypothesis and identify the circumstances that make corruption flourish.
There is, of course, a direct relationship between rampant corruption and failed national liberation –or its defeat– for getting rid of older colonialism is no complete realisation of that end – liberation. Massive privatisations also accompanied such failure and opened up new doors for corruption. Furthermore, real decision-making mechanisms may be seen hiding behind decision-making formalities, whether in ministerial cabinets or parliamentary buildings. Interchangeably, it hides behind decrees. Namely, corrupt practices take legal cover.
In his paper on Algeria, “Corruption as a Configuration of Power,” Daho Djerbal (1) argues that corruption is deemed institutionalised not only when widespread, but also when organised on the basis of socio-economic clientelist networks entrenched within the State apparatus, then disseminated into society through alternating intermediaries. It emerged fiercest, he says, when the State monopolised economy – in both capitalist and socialist paradigms.
Corruption is a configuration of economic rent which began as a system of economic and political regulation, whereby relations between State and its institutions, enterprises and their partners, civil society and its organisations, are all subject, by hook or crook, to rent-seeking logic instated to allocate all national resources (human, natural, financial, technical, and organisational), develop them, and distribute their generated revenues. Corruption thus became a “rite of passage” to accessing numerous public services.
As for decrees, Djerbal considers them as means for elected assemblies and democratically appointed authorities to avoid discussing major topics at hand. Those are tools invented to ensure wider reproduction of this system of new profits, to render the executive branch as sole party in charge of economic evaluation, and to arbitrage between conflicted interests for the sake of increasing revenues and systematise their redistribution. He also considers corruption and democracy as interlinked. As such, the emergence of “pragmatic practices” assumed by the authorities rely on a system of “remunerations, gift exchange, the fragmentation of spheres, places, and actors who determine what is legal and illegal, moral and immoral, legitimate and illegitimate…”
To illustrate his reflections, he gives a number of real-life examples from Algeria and analyses exposed “scandals”, the logic behind their trials, and the verdicts reached against their protagonists.
In investigating corruption in Algeria, Rachid Sidi Boumedine (2) wonders about what could be defined as corruption. He notes that one culturally distinguishes between corruption and bribes, commonly called “tchippa” or “qahwa,” that is, money ordinary citizens pay to buy access to services (mundane, occasionally) or any other goods, though already granted by virtue of law. One feature of a clientelist system is embodied in excessive authorised violations, starting from the highest ranks of the hierarchy, which simultaneously places the lower ranks at the mercy of executive circles, who could, in turn, punish the former for violation of the written law, if there need be.
Boumedine also notes how rentier networks function “internally”, like a clan (a family, village, affiliated community). As such, familiar arrangements of gift-exchange and mutual donations -characterised by their binding and impactful nature- create a favoured system of rights and obligations in society. Such principles consolidate a clientelist system by creating, nourishing, and sustaining reciprocal obligations among its members. He also claims that the system in Algeria has become neo-patrimonial.
This configuration of looting and corruption thus draws upon social acceptance for sustenance. As such, at least in part, it is not considered as theft carried out at the expense of the larger public. Such ideological design –which legitimises looting, whereby the latter is an act directed against an anonymous, undefined, long-hated state after all– thus becomes a gateway to a new social paradigm. He illustrates the question through describing those recurring handouts to the “poor”, or housing opportunities delivered in accordance with ever-contested lists – fashioned along surreptitious criteria. These operations further plunge their beneficiaries into that recognised mire of a clearly unjust system. It is a system that benefits whoever knows their way around maintaining good relations with network agents, ensuring access to those lists.
In their cowritten article reviewed by writer Omar Aljaffal (3), researchers Mohsin Ahmad Ali (4) and Abdul Rahman Al-Mashhadani (5) consider how the 2003 US occupation of Iraq –which toppled the political regime, dismantled the foundations of the state, reformulating them in accordance with US visions and under the administration of the “American civil governor of Iraq”, Paul Bremer– resulted in the transformation of corruption from a manageable and resistible phenomenon into a system protected by laws and legislations. It was thus turned into a daily practice protected by force of weapons, media, platforms, and religious fatwas.
The writers see the destruction of the public sector in the monopolisation of secure jobs by the ruling power and its parties. Those jobs are thus used as a card to purchase voter power in parliamentarian elections, whereby parties promise their supporters and clans jobs in return for their electoral vote. Subsequently, the number of government employees would reach 4.5 million, as opposed to 880 thousand employees in 2003. The two researchers claim that corruption developed and transformed into an “acceptable” social phenomenon after 2003, accompanied by a political shift towards a market economy led by political parties that landed with the occupier and/or emerged after 2003. Those parties have sectarian and racist agendas. Those parties ratified regulations and laws that furthered their interests, such as the “Jihad military service” – for people who had established organisations of armed resistance against Saddam Hussein’s regime and for “political prisoners”. As such, we do not stand before one type of corruption only (which manifests in bribery, among other illegal activity), but also before corruption protected by a legal framework that includes a larger range of different economic activities, subsequently rendering the country’s riches into material up for grabs to those in power and control, inside and outside Iraq. Between 2003 and 2018, financial crimes hit unprecedented records while financial waste surpassed $350 billion. The two researchers also affirm a close connection between intensified and aggravated corruption and external factors that instigate and encourage it. Many cases of corruption are thus entwined with external objectives abroad. Their article tackles manifestations of corruption throughout Iraq and its sectors, as well as those tools used by the ruling power to perpetuate its rule and those it uses to appease society.
Overall, research on corruption faces various challenges, some of which are obstructive indeed. Those include lack of published data, prohibited access to documents, lack of documentation in the first place, mistrust in researchers, and the potential harm that threatens the latter should their research be published. Additionally, research faces challenges that pertain to researchers themselves, from sticking to one familiar methodology they are prone to reproduce, to the scarcity of institutions capable of embracing and supporting them, or lack thereof, to competing over whatever little is available, all the way to declining intellectual standards and knowledge in general, and so on.
Ultimately, the endeavour we undertake here goes with an unexhausted obsession with searching and trying. It questions the way existing powers rule our countries. Along with the contributing researchers, Assafir Al-Arabi thus hopes to have tackled some of the aspects that could answer such a fundamental question.
1- Daho Djerbal is a historian. He teaches contemporary history at the University of Algiers 2. Besides his extensive research on economic and social history, he studies the relationship between history and memory. He has been the director of Naqd publication, a review of social studies and critique, since 1993. 2- Rachid Sidi Boumediene is both scientist and sociologist. He published a number of books and articles throughout his career as academic and consultant in both Algeria and abroad. 3- Iraqi poet and writer. He recently worked on a project that analysed Basrah’s local government in Iraq, as part of a “conflict resolution studies program” at the London School of Economics and Political Science (LSE). He received the Mostafa Husseini Prize for young journalists in 2017. 4- Professor of political economy at the University of Basrah. 5- Senior lecturer at Al Iraqia University, specialised
It shows a score of 39, the same as last year. There seems to be little progress in improving control of corruption in the Middle East and North Africa region generally but the massive protests currently thronging the streets in mostly the republics types of states of the MENA could be taken as seeking for improvement. Excerpts of the Khaleej Times follow.
With a score of 71, the United Arab Emirates is the best regional performer, followed by Qatar (62). At the bottom of the region, Syria scores 13, followed by Yemen with a score of 15. Both countries are significant decliners on the CPI, with Yemen dropping eight points since 2012 and Syria dropping 13 points during the same period.
Lack of political integrity
The region faces significant corruption challenges that highlight a lack of political integrity. According to our recent report, Global Corruption Barometer — Middle East and North Africa, nearly one in two people in Lebanon is offered bribes in exchange for their votes, while more than one in four receives threats if they don’t vote a certain way.
In a region where fair and democratic elections are the exception, state capture is commonplace. Powerful individuals routinely divert public funds to their own pockets at the expense of ordinary citizens. Separation of powers is another challenge: independent judiciaries with the potential to act as a check on the executive branch are rare or non-existent.
To improve citizens’ trust in government, countries must build transparent and accountable institutions and prosecute wrongdoing. They should also hold free and fair elections and allow for citizen engagement and participation in decision-making.
The UAE has been rated least corrupt country, yet again, in the Middle East and North Africa by the Berlin-based Transparency International’s Corruption Perception Index (CPI) 2019.
Globally also, the country retained its 21st ranking, scoring 71 points.
At the bottom of the region, Syria scores 13, followed by Yemen with a score of 15. Both countries are significant decliners on the CPI, with Yemen dropping eight points since 2012 and Syria dropping 13 points during the same period.
“The region faces significant corruption challenges that highlight a lack of political integrity. According to our recent report, Global Corruption Barometer – Middle East and North Africa, nearly one in two people in Lebanon is offered bribes in exchange for their votes, while more than one in four receives threats if they don’t vote a certain way,” said Transparency International said in the report released on Thursday.
“To improve citizens’ trust in government, countries must build transparent and accountable institutions and prosecute wrongdoing. They should also hold free and fair elections and allow for citizen engagement and participation in decision-making,” it said.
With a score of 53, Saudi Arabia improved by four points since last year. In 2017, the Saudi Crown Prince Mohammad Bin Salman carried out an “anti-corruption” purge as part of his reform of the country.
Regionally, the UAE is followed by Qatar, Saudi Arabia, Oman, Jordan, Bahrain and Kuwait.
Globally, the top countries are New Zealand and Denmark, with scores of 87 each, followed by Finland (86), Singapore (85), Sweden (85) and Switzerland (85).
More than two-thirds of countries score below 50 on this year’s CPI, with an average score of just 43. Similar to previous years, the data shows that despite some progress, a majority of countries are still failing to tackle public sector corruption effectively.
“Governments must urgently address the corrupting role of big money in political party financing and the undue influence it exerts on our political systems,” said Delia Ferreira Rubio Chair Transparency International.
International collaboration is the only way to defeat it.
Corruption takes many forms. It is often thought of as a problem that mostly affects developing countries. But while the harm it does is magnified in poorer nations, corruption does not concern itself with national boundaries – it can be unearthed anywhere.
1. Across the EMEA region (that’s Europe, the Middle East, and Africa) and India almost half of all workers think bribery and corruption are acceptable if there is an economic downturn.
2. Corruption, bribery, theft and tax evasion, and other illicit financial flows cost developing countries $1.26 trillion per year. That’s roughly the combined size of the economies of Switzerland, South Africa and Belgium, and enough money to lift the 1.4 billion people who get by on less than $1.25 a day above the poverty threshold and keep them there for at least six years.
3. The Transparency International Corruption Perceptions Index scores 178 countries on their degree of corruption – 10 is the cleanest possible, and 0 indicates endemic corruption. In 2010, around three-quarters of all 178 scored lower than five.
4. As much as $132 billion is lost to corruption every year throughout the European Union’s member states, according to the EU Commissioner for Home Affairs.
What’s the World Economic Forum doing about corruption?
It hosts the Partnering Against Corruption Initiative (PACI), the largest global CEO-led anti-corruption initiative.
Realizing that corruption hampers growth and innovation, and increases social inequality, PACI aims to shape the global anti-corruption agenda.
Founded in 2004, it brings together top CEOs, governments and international organizations who develop collective action on corruption, transparency and emerging-marking risks.
PACI uses technology to boost transparency and accountability through its platform, Tech for Integrity. Show
5. Bangladesh is one of the world’s poorer countries. Around one-third of the population say they have been the victims of corruption, and an astonishing 84% of those households who had interacted with different public and private service institutions have been victims of corruption.
6. In war-torn Afghanistan, of the $8 billion donated in recent years, as much as $1 billion has been lost to corruption. Integrity Watch Afghanistan estimates bribe payments — for everything from enrolling in elementary school to getting a permit — exceed $1 billion a year.
7. In one Russian province, if you want to become a police officer you will probably have to pay around $3,000. To get a place in medical school, you will need to part with around $10,000. One consequence of this, according to the International Crisis Group, has been that some people have grown so disaffected that they have become drawn to Islamic extremism.
The IMFBlog on May 28, 2019, is about a world phenomenon that seems to still be present in all walk of life throughout the world. The Costs of Corruption running deep in the MENA, have been amplified by the hydrocarbon-related rentier economies to a point where only a defossilisation of the respective economies could somehow reduce their extent. In the meantime, costs of corruption running deep in the MENA seem to go unattended to. Anyway here is this IMFBlog article.
The costs of corruption run deep. Your
taxpayer dollars are lost in different ways, siphoned off from schools, roads,
and hospitals to line the pockets of people up to no good.
Equally damaging is the way it corrodes the
government’s ability to help grow the economy in a way that benefits all
And no country is immune to corruption. Our
Chart of the Week from the Fiscal Monitor
analyzes more than 180 countries and finds that more corrupt countries collect
fewer taxes, as people pay bribes to avoid them, including through tax
loopholes designed in exchange for kickbacks. Also, when taxpayers believe
their governments are corrupt, they are more likely to evade paying taxes.
The chart shows that overall, the least corrupt governments collect 4 percent of GDP more in tax revenues than countries at the same level of economic development with the highest levels of corruption.
A few countries’ reforms generated even higher
revenues. Georgia, for example, reduced corruption significantly and tax
revenues more than doubled, rising by 13 percentage points of GDP between 2003
and 2008. Rwanda’s reforms to fight corruption since the mid-1990s bore fruit,
and tax revenues increased by 6 percentage points of GDP.
These are just two examples that demonstrate that
political will to build strong and transparent institutions can turn the tide
against corruption. The Fiscal Monitor
shines a light on fiscal institutions and policies, like tax administration or
procurement practices, and show how they can fight corruption.
costs of corruption run deep.
Where there is political will, there is a way
Fighting corruption requires political will to
create strong fiscal institutions that promote integrity and accountability
throughout the public sector.
Based on the research, here are some lessons for
countries to help them build effective institutions that curb vulnerabilities
Invest in high levels of transparency and
independent external scrutiny.
This allows audit agencies and the public at large to provide effective
oversight. For example, Colombia, Costa Rica, and Paraguay are using an online
platform that allows citizens to monitor the physical and financial progress of
investment projects. Norway has developed a high standard of transparency to
manage its natural resources. Our analysis also shows that a free press enhances
the benefits of fiscal transparency. In Brazil, the results of audits impacted
the reelection prospects of officials suspected of misuse of public money, but
the impact was greater in areas with local radio stations.
Reform institutions. The chances for success are greater when
countries design reforms to tackle corruption from all angles. For example,
reforms to tax administration will have a greater payoff if tax laws are
simpler and they reduce officials’ scope for discretion. To help countries, the
IMF has built comprehensive diagnostics on the quality of fiscal institutions,
investment management, revenue administration, and fiscal transparency.
Build a professional civil service. Transparent, merit-based hiring and pay reduce
the opportunities for corruption. The heads of agencies, ministries, and public
enterprises must promote ethical behavior by setting a clear tone at the top.
Keep pace with new challenges as technology and
opportunities for wrongdoing evolve.
Focus on areas of higher risk—such as procurement, revenue administration, and
management of natural resources—as well as effective internal controls. In
Chile and Korea, for example, electronic procurement systems have been powerful
tools to curtail corruption by promoting transparency and improving
More cooperation to fight corruption. Countries can also join efforts to make it harder
for corruption to cross borders. For example, more than 40 countries have
already made it a crime for their companies to pay bribes to gain business
abroad under the OECD
anti-corruption convention. Countries can also aggressively pursue
anti–money laundering activities and reduce transnational opportunities to hide
corrupt money in opaque financial centers.
Curbing corruption is a challenge that requires persevering on many fronts, but one that pays huge dividends. It starts with political will, continuously strengthening institutions to promote integrity and accountability, and global cooperation.
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