Iker Lekuona
Director, ICAR
Iker Lekuona joined the Basel Institute on Governance in May 2019 and is currently Director of the International Centre for Asset Recovery (ICAR). He is a governance and anti-corruption specialist with over 15 years of experience at strategic, management, programme and policy levels for multilateral, civil society and private sector organisations.
As Director, he is responsible for the overall direction and leadership of ICAR’s country programmes and teams in Asia Pacific, Eastern Europe, Central Asia, Latin America and Sub-Saharan Africa. He is also a member of the Basel Institute’s Management Group.
Prior to joining the Basel Institute, Iker was Head of Governance and Stability at the international development firm Adam Smith International (ASI). In this role, he oversaw, managed, and grew a portfolio of anti-corruption programmes worth USD 35 million across Sub-Saharan Africa.
As a Governance Specialist for the World Bank in Uganda, he contributed to designing and delivering a portfolio of supply- and demand-side governance programmes. These included coordinating the evaluation of the Government of Uganda’s cross-sectoral performance for a USD 250m-per-year, multi-donor budget support operation; supporting the implementation of the anti-corruption component of the country’s largest social protection programme; and providing technical assistance to a civil society coalition monitoring government contracts in the education, health and road sectors.
Moreover, Iker created and led the strategic research and capacity building departments of PODER, a non-governmental organisation whose goal is to improve corporate transparency and accountability in Latin America.
Iker holds an MA in Social Sciences – International Relations and Political Theory – from the University of Chicago, a Graduate Minor in Human Rights from the University of Minnesota, and a BA in English from the University of Deusto.
News and blog
How Peru is making asset recovery a frontline tool against organised crime
A joint reflection by Iker Lekuona, Director of the Basel Institute's International Centre for Asset Recovery ICAR and Oscar Solórzano, Head of Latin America for ICAR, on how Peru is translating its commitment to combating organised crime into lasting institutional capability. Across Latin America, governments face mounting pressure to respond to organised crime, illicit finance and growing public concerns about security. At the same time, international development budgets are under strain. In this environment, one question keeps resounding: how can countries build capacity to tackle complex criminal threats with greater independence and resilience? For those of us working in asset recovery, the answer lies in institutions. Our goal in building asset recovery capability One of the ambitions behind ICAR’s technical assistance has always been straightforward. We want our partners to reach the point where they no longer rely on us for day-to-day operational support. Our partnerships should evolve towards higher-value strategic collaboration. Technical assistance should leave behind stronger systems, stronger expertise and stronger institutions capable of carrying the work forward independently. This is why recent developments in Peru are particularly significant. A strategic response to financial and organised crime Under the leadership of Attorney General Tomás Aladino Gálvez Villegas, the Public Prosecutor's Office is implementing a series of reforms that embed financial investigation, asset recovery and institutional coordination at the heart of Peru's response to organised crime. The reforms form part of the Sistema Fiscal Integrado de Recuperación de Activos SFIRA or “Integrated Prosecutorial Asset Recovery System”. At a meeting in May this year with Attorney General Gálvez and senior colleagues, we reflected on the challenges posed by modern organised crime and the need for institutions that can respond to increasingly sophisticated illicit financial flows. Regarding the intent behind the reforms, the Attorney General commented: We cannot continue expecting different results while relying on the same institutional approaches. Organised crime has evolved, and so must we. This reform reflects our determination to move beyond declarations of intent and build the permanent capabilities that prosecutors need to confront increasingly sophisticated criminal organisations. Reflecting on impact of the Basel Institute’s technical assistance through ICAR, he said: We value the support that the Basel Institute on Governance has provided over the years, and we invite the Basel Institute, our government institutions and the wider international community to join us in this effort. Confronting organised crime is a shared challenge that requires a shared commitment. This is how we turn commitment into practical action. Having worked closely with the Peruvian authorities for more than a decade, we believe this direction will be transformative for the country and its people. We also believe other jurisdictions can be inspired by this strategic, systemic response. We share some of the reasoning and details below. Organised crime is a financial phenomenon Public debates about organised crime often focus on violence or trafficking. Yet in anti-corruption and asset recovery circles, we all know that criminal organisations survive only because they are able to generate, move, conceal and reinvest enormous sums of money. The financial dimension of organised crime has become increasingly important as criminal groups expand across borders, diversify their activities and develop closer relationships with professional facilitators and corrupt actors. Illegal mining, environmental crime, drug trafficking, corruption and money laundering are frequently connected through the same financial networks. This is one reason why asset recovery has attracted growing attention from governments and international organisations alike. Less-known benefits of focusing on asset recovery Recovering illicit assets is valuable in itself, not least in times of squeezed public budgets and reduced flows of development aid. Confiscated assets can be reinvested in enhancing the capabilities of law enforcement and prosecution authorities. They can also be used to compensate victims and communities affected by corruption and crime. More importantly, the process of conducting financial investigations and pursuing illicit assets helps authorities understand how criminal networks operate, identify those who profit from them and weaken the structures that allow them to endure. This agenda has particular relevance today because it commands broad support across political and ideological divides. Governments may disagree on many issues. The need to tackle organised crime and illicit finance is rarely one of them. What makes the reforms innovative and impactful Experience has also shown that asset recovery cannot remain a specialised activity reserved for exceptional cases. To keep pace with increasingly sophisticated criminal organisations, countries need to move beyond isolated successes and build institutions that make financial investigation and asset recovery part of everyday prosecutorial practice. In Peru, rather than creating another specialised unit, the Public Prosecutor's Office is building an institutional model that brings together the capabilities needed to tackle the financial dimension of organised crime in a more coordinated, multidisciplinary and sustainable way. The model combines specialised operational support for prosecutors, strategic criminal analysis and stronger institutional coordination. At the same time, it seeks to ensure that the knowledge gained through complex investigations is progressively embedded within the organisation. The objective goes beyond success in individual cases. The aim is to strengthen the Public Prosecutor's Office's long-term capacity to investigate, disrupt and recover the proceeds of organised crime. Importantly, the new arrangements will support both international and domestic asset recovery efforts. - International cases remain essential but often require years of litigation and cooperation across multiple jurisdictions. - Domestically, Peru can also do a lot to target criminal assets located within its own borders and to disrupt illicit economies that continue to fuel insecurity and corruption. As part of this effort, the Public Prosecutor's Office is investing its own resources in the new structure, including resources linked to a tripartite asset return agreement between Peru, Luxembourg and Switzerland that was supported by the Basel Institute through ICAR. From technical assistance to national ownership This institutional model reflects capabilities developed over more than a decade of operational cooperation between our ICAR team and the Public Prosecutor's Office. Through joint work on complex investigations, both our institutions developed practical approaches to financial investigation, international asset recovery and multidisciplinary prosecutorial support. The current reforms seek to embed these proven capabilities within the permanent structures of the Public Prosecutor's Office. This will ensure that the knowledge accumulated through years of operational cooperation becomes part of the institution itself rather than remaining dependent on external technical assistance or individual expertise. For donors and development partners, this matters. The value of technical assistance cannot be measured only by assets recovered or training sessions delivered. Its deeper contribution lies in helping institutions develop the confidence, capabilities and structures needed to perform these functions independently and continuously improve them over time. Why this matters beyond Peru Every country must develop solutions that fit its own legal system, institutions and priorities. Yet some lessons travel well. One is that asset recovery works best when it is integrated into broader efforts to combat organised crime rather than treated as a specialised activity operating at the margins of criminal investigations. Another is that sustainable progress depends on institutions. Cases come and go. Leadership changes. Criminal networks evolve. Strong institutions provide continuity. Peru's reforms will not solve every challenge posed by organised crime. No single reform can. But they represent a thoughtful and ambitious attempt to strengthen the state's ability to understand, investigate and disrupt the financial foundations of criminal activity. For us, they also represent something else: evidence that long-term partnerships can create capabilities that endure beyond any individual project. There are few better outcomes for a technical assistance programme than seeing the ideas, methods and expertise it has supported become part of the institutions it set out to strengthen.
Enhancing cooperation in asset recovery is vital for crime prevention
This article by Iker Lekuona explains the importance of asset recovery for crime prevention and highlights three vital aspects of international cooperation in corruption and asset recovery cases: informal cooperation mechanisms, trust and technical assistance. It is republished with permission from the 6th Newsletter of the United Nations Crime Prevention and Criminal Justice Programme Network of Institutes PNI . We participate in this network of 18 institutes and entities and strongly support the PNI's mission to "assist the international community in strengthening cooperation in crime prevention and criminal justice on the global, regional and sub-regional levels, within the framework of the United Nations Crime Programme." Find all newsletters and information about the PNI here. At first glance, the Kyoto Declaration’s fourth pillar may appear to combine two separate things. Why should “international cooperation” and “technical assistance” be connected? The Basel Institute’s International Centre for Asset Recovery ICAR provides technical assistance to over 18 jurisdictions across Africa, Latin America, Eastern Europe and Asia. We work hand in hand with our partner governments to strengthen the capacity of law enforcement and criminal justice systems to investigate and prosecute financial crimes and recover illicit assets. International cooperation is a vital part of the asset recovery process and of the technical assistance that we provide. The transnational, high-level cases of corruption and money laundering that we support often involve multiple jurisdictions in which criminal proceeds are sourced, transferred, laundered, hidden and spent. We see constantly that when it comes to asset recovery as a means to prevent and address corruption and other serious transnational crimes, international cooperation and technical assistance go hand in hand. Asset recovery: key to preventing crime In the eyes of the public, asset recovery is often seen through the lens of enforcement. It is linked to prosecutions and sanctions and to the desire for justice to be done. But as Article 70 of the Kyoto Declaration emphasises, asset recovery is “an important element of crime prevention… particularly in cases involving corruption”. At the Basel Institute, we see prevention and enforcement as two sides of the same coin – complementary ways to change behaviours and social norms towards integrity. For asset recovery, three areas stand out. Deterrence: Confiscating criminal assets tackles the primary incentive to engage in financial crimes: the money, which is a gateway to power and influence. When public agencies and their foreign counterparts work efficiently to investigate, confiscate and recover illicit assets, this has a strong deterrent effect. Disruption: The financial investigations at the heart of the asset recovery process are key to understanding and disrupting organised criminal networks. Techniques such as social network analysis can build on these investigations, mapping the relationships between individuals and entities involved in criminal enterprises, from wildlife trafficking to grand corruption and money laundering schemes. Trust: When citizens see that illicit assets are confiscated from corrupt individuals and high-level criminals, this helps to build trust in state institutions and to foster a more stable social environment. This effect is enhanced when recovered assets are reinvested in public goods – for example as Kenya did to pay for hospital equipment during the Covid-19 pandemic or as Zambia has done to fund university education for underprivileged students. Our technical assistance to partner governments focuses on strengthening every link in the asset recovery process or “chain” – from detection of criminal assets right through to their recovery and return. Sometimes this can go further. In Peru, assets recovered in landmark cases from Switzerland and Luxembourg are being channelled into strengthening the criminal justice system, under an ongoing tripartite agreement that ICAR facilitated. Through this approach, we see tangible impacts on the strength and functioning of criminal justice systems as a whole in our partner countries. And that can only be positive for crime prevention. Evolutions in international cooperation for asset recovery Over the nearly two decades that ICAR has been active as a specialised centre of the Basel Institute on Governance, we have seen promising evolutions in international cooperation in the context of asset recovery: 1\. Informal cooperation mechanisms and networks In line with the Kyoto Declaration’s articles 63 and 64, we have seen a blossoming of positive initiatives to boost informal cooperation between competent authorities on transnational cases of corruption and asset recovery. Such informal cooperation is vital to obtaining intelligence and building connections between counterparts from across borders. The Global Operational Network of Anti-Corruption Law Enforcement Authorities GlobE Network facilitated by UNODC is one such initiative. It eases the exchange of information between frontline anti-corruption law enforcement practitioners across the world. As an observer member, ICAR contributes its experience to the network’s growing efforts to accelerate efforts to identify, trace and confiscate the proceeds of crime. The International Anti-Corruption Coordination Centre IACCC and the Global Forum for Asset Recovery Action Series are two other initiatives that have been game changers in terms of expediting intelligence sharing and cooperation on priority cases. The first is hosted by the UK government, while the second is an initiative of ICAR and the World Bank’s StAR Initiative together with the IACCC. These mechanisms are leading to tangible results in smoothening and complementing formal mutual legal assistance processes. 2\. Trust and relationships The softer aspects of international cooperation shouldn’t be underestimated. We see daily in our work how trust and good relationships between authorities engaged in mutual legal assistance are essential to smoothen the process and lead to a successful result. This aspect was vital to achieving Colombia’s first-ever international asset return using its non-conviction based forfeiture law in 2024, of nearly half a million dollars in proceeds of drug trafficking from Guernsey. The Colombian authorities recognised ICAR’s “contribution and experience \ which\ facilitated the rapprochement and communication between the Colombian Attorney General’s Office and His Majesty’s Procureur’s Office in Guernsey.” They noted that “\ t\ his has been an excellent example of how judicial authorities can work together to ensure the recovery of the proceeds derived from criminal activities.” Trust, sustained collaboration, communication and positive relationships are also at the heart of successful asset return agreements and frameworks. One example is Jersey’s return of around USD 3.7 million in corruptly obtained funds to Kenya, in a case that had previously been stalled for a decade. Proactive informal cooperation, which ICAR helped to facilitate, was key to building trust between the parties, breaking the deadlock, finding legal solutions to recover the funds and agreeing their safe return for the benefit of Kenyan citizens. This case was the first asset return under another innovative cooperation agreement based on a sustained relationship of trust: the Framework for the Return of Assets from Corruption and Crime in Kenya FRACCK . Agreed and signed by the Governments of Kenya, Jersey, Switzerland and the UK, this was praised by UNODC’s Officer-in-Charge of the Corruption and Economic Crime Branch as being an “innovative” and “novel” approach to asset return. 3\. Building capacity among international counterparts Article 66 of the Kyoto Declaration makes it clear why it is not enough just to focus on formal and informal cooperation mechanisms, and why technical assistance is vital to the functioning of the system as a whole. States, it says, should: promote, facilitate and support the widest measures of technical assistance, including material support and training, with a view to enabling law enforcement authorities and criminal justice institutions to effectively prevent and combat crimes, taking into account the specific challenges faced by and the particular needs of developing countries. International cooperation is a two-way street. Financial centres seeking to detect and confiscate illicit assets will need information and evidence from the countries in which the crimes took place. And a lot of time can be wasted if mutual legal assistance requests are poorly drafted or not in line with the receiving state’s requirements. Yet many jurisdictions that suffer the worst effects of corruption and crime have low capacity and resources for asset recovery and for international cooperation in general. That is why it is so vital for international donors to support technical assistance programmes aimed at supporting the international cooperation process and building the capacity of counterparts in lower-resource jurisdictions. This could take the form of financial support, such as the kind provided by ICAR’s core donor group: the governments of Jersey, Liechtenstein, Norway, Switzerland and the UK. This financial support for our hands-on mentoring and training in low-capacity jurisdictions has been vital in enabling us to remain agile and innovative, to pilot new methods before scaling them up, and to provide sustained assistance in partner countries beyond the usual short-term project lifecycle. To take just one example, our ongoing technical assistance programme in Peru has resulted in the development and implementation of a non-conviction based forfeiture law that has already led to the confiscation of millions in stolen assets domestically and internationally. Developing asset recovery communities and leaders is another area where states can provide resources and active participation as part of their efforts to promote technical assistance. Practitioner networks are vital for peer learning and to build those trust-based relationships that are so crucial to international cooperation. A standout example is the annual Global Conference on Criminal Finances and Cryptocurrencies, which we organise with Europol and which UNODC hosted this year in Vienna. Conclusion Our ICAR teams around the world see at first hand the importance of asset recovery for crime prevention, as the Kyoto Declaration emphasises. Recovering assets helps to deter corruption and criminality, disrupt criminal networks and build citizens' trust. To boost asset recovery, we need to strengthen every link in the asset recovery process or "chain", from early detection of illicit assets to their eventual recovery and return. And for that, technical assistance is vital. This article highlights three key areas of technical assistance that align with the Kyoto Declaration's spirit, ICAR's strategic approach and UN-led actions: informal information-sharing mechanisms and networks; efforts to build trust and relationships to smoothen international cooperation; and capacity building between countries. Learn more Read Working Paper 51: Good practices in asset recovery legislation in selected OSCE participating States, by Andrew Dornbierer.
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