In the context of a discussion session that examined governance in the central Zakat committees in the West Bank
AMAN recommends the establishment of an independent Zakat fund, both financially and administratively, to enhance independence and effectiveness
Ramallah—The Coalition for Integrity and Accountability (AMAN) held a discussion session on a draft report titled "Integrity, Transparency, and Accountability in the Work of Central Zakat Committees in the West Bank and the Effectiveness of Their Role" as part of its efforts to improve governance and enhance the environment of integrity in the work of these committees and to improve their organizational procedures to protect them from corruption risks.
Zakat as a tool of solidarity and justice is subject to accountability.
The session was opened by the Executive Director of AMAN Coalition, Issam Haj Hussein, emphasizing the importance of Zakat committees, especially under the current circumstances our people are going through on all levels, where the segment of needy and poor families has expanded. Additionally, Haj emphasized that the work of Zakat committees embodies ethical and social dimensions, reflecting the values of justice, solidarity, and mutual support among citizens. He also stated that Zakat funds are public funds, which are subject to accountability principles and require the highest levels of governance and transparency.
Legislative and structural gaps threaten integrity
Researcher Ahmad Abu Dia reviewed the main findings of the report, highlighting the real challenges that weaken the values of governance and transparency in the work of the central Zakat committees. He pointed out the urgent need to update the legal and regulatory frameworks, noting that the relevant systems and legislation have not been approved by the Cabinet nor published in the official gazette. He also mentioned that the current legal framework does not keep pace with work developments and does not clearly reflect the relationship between the committees and the Ministry of Awqaf or other state institutions.
Gaps in preventive measures against corruption
The report showed that preventive measures related to integrity values are clearly lacking, most notably the absence of effective policies to prevent conflicts of interest and the absence of codes of conduct for committee members or procedures for disclosing financial interests. The committees also do not have policies to regulate gifts and rewards, leaving room for the potential misuse of public resources.
Absence of digital transparency and weak information accessibility
Some committee representatives announced the presence of information access policies, however, the report revealed the absence of written instructions or actual publication of data related to budgets, expenditure reports, or audited reports. He pointed out that most committees do not have official websites and rely on social media pages to communicate with the public, which are insufficient for publishing official documents.
Surveillance is in place, but social accountability is absent
The report also stated that the Zakat committees is scrutinized by several entities, which include the Bureau of Financial and Administrative Control, internal auditors, and the General Administration of the Zakat Fund, but community accountability is almost non-existent. It also indicated that the municipal complaint system lacks a unified electronic structure, with the Anti-Corruption Commission recording a limited number of complaints and suspicions of corruption.
Neutrality of the committees: Between dominance and interferences in their formation process
Although there are criteria in place for determining the beneficiaries of Zakat, as well as for membership of the committee and in the recruitment processes, the report indicated that some committees were subjected to external pressures during those processes. The researcher considered that restricting the authority to form and dismiss committees to the Minister of Awqaf undermines the guarantees of independence and neutrality.
Limited effectiveness due to lack of resources and varying capabilities
The report concluded that the central Zakat committees suffer from a lack of human and financial resources, in addition to significant disparities between the committees in terms of organizational structure and number of employees, with some operating with only one employee. Moreover, the Zakat Fund operation in providing services is parallel to that of the committees, which limits their effectiveness.
Toward financial and administrative independence that ensures integrity
The report recommended that the Cabinet develop new legal guidelines that clearly define the nature of the central Zakat committees. That legal system would align with modern legislation and address the imbalance in the relationship between the committees and state institutions. The report also emphasized the need to establish clear organizational structures for these committees that succinctly define responsibilities and ensure a fair distribution of tasks.
As for integrity, the report recommended extending government regulations to prevent conflicts of interest and acceptance of gifts to all committees and preparing a code of conduct specifically for committee chairs and members, in addition to requesting the Anti-Corruption Authority to implement a financial disclosure system for those in charge of these committees.
The report also called for the preparation of clear instructions to preserve the funds and properties of the committees and prevent their exploitation, to activate the committees' commitment to implementing the Public Procurement Law, and to enhance communication between them and the Anti-Corruption Commission, adopt policies for managing corruption risks, and conduct regular awareness training.
As for transparency, the report emphasized the need to develop official websites for the Zakat committees and issue standards for accessing services, budgets, and financial and regulatory reports, as well as adopt effective policies for public access to information.
At the level of accountability, the report recommended establishing effective internal oversight units, enhancing cooperation with the Financial and Administrative Control Bureau, activating community accountability tools to boost public trust, and developing a unified and computerized complaint system that facilitates interaction.
To enhance the neutrality of these committees, the report suggested developing unified procedural guidelines that include clear work mechanisms to reduce the chances of interference and personal interpretations and adopting a new mechanism for forming the committees to ensure the representation of the local community and civil society institutions.
Finally, the report emphasized the importance of extending financial support to these committees by transferring the funds collected by the Zakat Fund to the committees rather than providing services in parallel. It also emphasized the importance of providing training and qualification programs for the employees working in these committees to enable them to perform their duties effectively and professionally.
Clarifications on forming the committees and the follow-up and monitoring mechanisms
Abdul Rahman Dar Hassan, director of the Zakat Committees at the Palestinian Zakat Fund, explained that there are 14 central Zakat committees operating at the national level, in addition to about 36 independent committees performing similar tasks and services. He pointed out that the formation of the committees is done in coordination with the local community through municipalities, local councils and the directorates of endowments in various regions, and the proposed names are later submitted to the security authorities for approval. He also said that this procedure is practiced in all state institutions, and is based on the followed ministerial instructions rather than being explicitly stated in a clear legal text.
Dar Hassan explained that the Zakat Fund closely monitors all financial and administrative details of these committees, from appointing employees to receiving periodic accounting reports, all through an internal website that connects the fund with the committees. The receipt books are subject to strict control, as they are only handed over to the designated accountant, officially stamped by the Ministry of Awqaf, and returned in a documented manner when any committee is dissolved.
Regarding complaints, Dar Hassan acknowledged the weakness in following up on some complaints that come from the Zakat committees to the fund, considering that this file needs better regulation and organization, especially concerning public complaints or what he described as "reverse complaints." He also emphasized that regulating the distribution of receipt books is one of the most important tools of integrity and transparency that the fund prioritizes, confirming that the adopted procedures apply to all committees, whether central or independent.
Structural and societal issues in the organization of Zakat committees
Samir Al-Rubai, director of the South Hebron Zakat Committee, pointed out during the session that the structure of the Zakat committees has undergone repeated transformations, starting with the consolidation of 92 existing local committees into 11 central committees by 2017, with the aim of organizational unification and administrative facilitation.
However, this step later faced regional and local challenges that prevented the completion of the unified “Higher Zakat Council” model, especially in Hebron Governorate, which resulted in a gradual return to the model of local and independent committees, with the central committee remaining as a general supervisory umbrella.
He then underscored the fact that the key factor in encouraging citizens to give zakat and provide assistance is the level of trust in the committees, as donations are often linked to the names of the individuals working in the committees rather than in the institution, which indicates a flaw in the institutional framework of the relationship with the donors.
Al-Rubai also pointed out real difficulties in the bank accounts for sponsorship of orphans, where bank fees and deductions are imposed on small amounts, directly affecting the beneficiaries, with little response from the monetary authority or banks.
Moving on to the matter of tenders and supplies, Al-Rubai stated that the committees do not oppose applying the regulatory laws, but some of their relief projects, face difficulties related to the time frame, especially in emergencies or seasonal cases like Ramadan or Eid al-Adha, which limits their ability to apply public procurement laws to supplies or tenders, which is time-consuming and leads to loss of funding and time for disruption. He also stressed the need for a special approach to Zakat projects, taking into account their urgent nature and the conditions of their implementation in the field.
He concluded by stating that the committees do not oppose oversight or accountability, but they demand that legislation be aligned with the unique nature of their work, away from the traditional measures applied to ministries and government institutions.
The absence of a unified salary structure
Mr. Samir Abu Halil from the South Hebron Zakat Committee explained that the absence of a unified salary structure for Zakat committees poses a significant challenge to the stability of institutional work. That is because salaries are disbursed from each committee's budget independently, leading to disparities in all committees' ability to secure end-of-service bonuses for employees.
He indicated that relying solely on zakat funds for salaries and entitlements, without government support or a unified fund, leaves employees in a state of financial vulnerability and without job security. He also emphasized the necessity of having a permanent professional management in each committee led by an executive director, given that committee heads are not available, which necessitates separating administrative work from voluntary roles.
Rahhal: Zakat funds are public money and must be subjected to transparency and accountability.
Dr. Omar Rahhal, director of the Shams Human Rights Foundation, criticized the lack of clarity in the legal framework governing the work of Zakat committees, which weakens institutional accountability. He pointed out that trust in Zakat committees is affected by lack of transparency, emphasizing that citizens have the right to know how and where Zakat funds are spent, who the beneficiaries are, on what basis they are chosen, and whether political or organizational considerations interfere with the distribution processes.
Rahhal stressed the importance of publishing financial reports periodically, explaining that external audits by auditing firms do not replace the public's right to access clear data on allocations for education, health, orphans, and other zakat expenditures, as long as the managed funds are public money.
Tahbouh: The absence of a legal framework for the Zakat Fund hinders its independence and affects its efficiency.
Meanwhile, Professor Hassan Tahboub, the former Director General of the Zakat Committees Fund, confirmed that the efforts made since 2007 to establish an independent financial and administrative Zakat Fund have not been crowned with the issuance of a law regulating its work, explaining that the "Zakat Fund" is still treated as a "department or public agency," even though it effectively operates as a fund. This ambiguous situation in its administrative and institutional nature creates confusion in the relationship with the Zakat committees and limits the effectiveness of organization and follow-up.
Tahboub indicated that the Jordanian model for managing zakat could provide a solution to most of the challenges they face.
He also pointed out practical difficulties, such as lack of warehouses to store in-kind zakat, gaps in managing conflicts of interest, and gaps in handling travel arrangements for members.
He then stated that community trust in the committees should be supported by many other measures to enhance transparency, calling for the determination of committee membership duration and regular rotation, stressing the need to reform the organizational structure and provide a clear legal framework to regulate the relationship between the fund and the committees.
The participants in the session agreed that reform of the legal framework governing the work of Zakat committees is necessary. They recommended that an independent Zakat fund be established for both financial and administrative control and to ensure enhanced governance and limit conflicts and interference of government.
The AMAN Coalition's focus on the issue of zakat comes in this context, aiming to safeguard zakat funds as public money and to enhance citizens' trust in their management. That is part of its supervisory role and its role in raising public awareness to ensure integrity and transparency in the management of public affairs and finances.
