fragile institutions, it is a weak state. some would say a hollow state. you don't really have much operational capacity within the government, but there certainly has been cases over the years of bumping up payrolls or other types of graft, basically a way to siphon off resources from the government. >> is it difficult to actually track where the money goes? in haiti, i read that the u.s. had trouble tracking aid it gave to haiti after a 2004 storm because some initial fact-finding trip was ruled as too dangerous? >> that is right. tracking the money has really been a huge challenge. everyone realizes that there needs to be accountability in aid and that it is important to have zero tolerance policy for corruption. but as a practical matter, what you have in haiti is so much money coming in from different sources, private source, multilateral organizations, as well as the u.s. government and other foreign governments, it is going to nongovernmental organizations, local governments in some cases, the national government. so, as a result, it's really hard to get a clear picture of