Controversy over direct contract for ex-minister

The appointment of former Gozo Minister Justyne Caruana as a part-time legal advisor to the Customs Department has drawn sharp criticism due to the lucrative nature of her contract and the way it was awarded. Joseph Caruana, the Commissioner for Inland Revenue, justified the appointment by pointing to the unsuccessful outcome of a public recruitment process, which failed to draw qualified applicants.

Vacancy fails to attract interest due to low salary

According to official responses provided to The Shift, the CIR justified the appointment on the basis that no qualified lawyers applied for the advertised role. The vacancy, published in the Government Gazette in mid-2023, sought a Senior Legal Officer with at least five years of experience. However, it only offered an annual salary of €29,000—a figure considered too low to attract experienced legal professionals.

Government records obtained via a Freedom of Information request show that this salary level was deliberately set by the CIR himself. Given the low remuneration, the lack of interest was not unexpected. The role remained unfilled even as the Customs Department faced a shortage of in-house legal expertise. Previously, two full-time lawyers had staffed the department; one resigned and the other was reassigned to another government entity.

Direct order issued for Justyne Caruana at more than double the rate

In the face of mounting pressure to fill the position and maintain legal oversight within the department, the CIR opted to bypass the traditional recruitment process. He submitted a request to the Finance Ministry to approve a direct contract for Justyne Caruana, who was then appointed at a significantly higher rate—€78,000 annually—for a 30-hour work week. This move was not only controversial due to the size of the salary package, but also because it starkly contrasted with the original terms offered publicly.

The decision has raised eyebrows among public administration experts and civil society observers. Critics argue that the entire process was orchestrated to justify the hiring of Caruana, especially given the unrealistic conditions of the public vacancy.

Caruana’s multiple government roles and income raise questions

What has made the situation more controversial is Justyne Caruana’s simultaneous involvement in several other government roles. Alongside her new position with the Customs Department, she holds advisory roles at the Lands Authority, the Victims Support Agency, and also acts as an advisor to Gozitan Health Minister Jo Etienne Abela. These roles collectively generate an annual income of approximately €180,000 for her—three times more than the officially declared salary of Prime Minister Robert Abela.

This figure, made public through media investigations and confirmed by internal documents, has intensified scrutiny over how high-ranking former ministers continue to benefit from government contracts long after leaving office.

Finance Ministry gave green light to contract without objections

The request for Caruana’s appointment was submitted by the CIR to Paul Zahra, the Permanent Secretary at the Ministry of Finance. Despite the considerable increase in remuneration compared to the original vacancy, Zahra approved the request without requesting clarification or conducting further review. Observers argue that such administrative acquiescence indicates a systemic issue in government hiring practices.

The lack of transparency and due diligence in the process is particularly troubling given Caruana’s political background and past controversies, which continue to shadow her re-entries into public administration.

Controversial political history of Justyne Caruana

Caruana's career has been marred by multiple controversies and two forced resignations from Cabinet roles within the same legislative term.

In 2020, she resigned after it was revealed that her then-husband, Silvio Valletta, who was serving as Deputy Police Commissioner, had close ties with Yorgen Fenech, the entrepreneur alleged to have masterminded the murder of investigative journalist Daphne Caruana Galizia. Valletta was photographed traveling abroad with Fenech, raising serious ethical and legal concerns.

Nonetheless, Caruana was reappointed to the Cabinet within a year, taking on the role of Minister for Education. However, she was dismissed once again by Prime Minister Robert Abela after it was revealed that she had granted a government contract to her partner, former footballer Daniel Bogdanovic, under questionable circumstances.

Contract extended despite continued lack of full-time hires

Despite the controversy and questions surrounding her appointment, Caruana’s contract was renewed for another year in summer 2024, under the same financial terms. As of now, the Tax Department still lacks a full-time in-house lawyer, suggesting that there has been no effort to resolve the initial problem through open recruitment or more competitive remuneration.

The continuation of her contract has sparked renewed debate about the ethics of political appointments, the use of public funds, and the role of accountability in the civil service. With no visible action taken to rectify the situation, many have called for an investigation by the National Audit Office or the Office of the Ombudsman.

Broader implications for public sector governance

The Justyne Caruana case is increasingly being seen as a symptom of a wider issue in Maltese public administration: the tendency to sideline open competition in favor of politically connected appointments. Transparency and fairness in recruitment are central to maintaining public trust in institutions. However, instances such as this erode confidence and create a perception of systemic favoritism.

Civil society organizations and opposition politicians have demanded reforms to prevent such cases in the future. Proposals include introducing stricter oversight on direct orders, mandatory reviews of contract justifications, and enhanced transparency around remuneration in the public sector.

The lack of institutional response

Perhaps most striking in this case is the lack of institutional pushback. The Finance Ministry’s silence and the passive role of the civil service in approving and renewing such appointments illustrate how blurred the lines between politics and governance have become in certain quarters.

Without a rigorous mechanism to scrutinize such decisions, it is likely that politically motivated contracts will continue to be issued without sufficient checks and balances. The implications for both public service integrity and fiscal responsibility are significant.

Conclusion

The appointment of Justyne Caruana as a part-time legal advisor to the Customs Department has reignited longstanding concerns about transparency, meritocracy, and accountability within Malta’s public sector. While the Commissioner for Inland Revenue defended the decision on the grounds of necessity, the process by which her lucrative contract was awarded—particularly following an uncompetitive public call—raises serious ethical and procedural questions.

The fact that Caruana continues to hold multiple government positions and earn a combined annual salary significantly exceeding that of the Prime Minister adds to public discontent. The absence of adequate scrutiny by oversight bodies, such as the Finance Ministry, further highlights the systemic weaknesses in Malta's governance framework.

As public trust in government institutions is increasingly strained, this case serves as a stark reminder of the urgent need for reforms to safeguard fairness and integrity in public appointments. Establishing clear, transparent processes and restoring merit-based recruitment are essential steps toward strengthening democratic accountability and public confidence in state institutions.

FAQs

What role does Justyne Caruana currently hold?
She is a part-time legal advisor to the Customs Department, along with holding several other advisory roles in government.

How much is she being paid for the legal advisor position?
She earns up to €78,000 annually for a 30-hour work week.

Why was her appointment controversial?
It bypassed a public call that offered significantly lower pay, raising concerns of favoritism and lack of transparency.

What was the original salary offered in the public vacancy?
The original vacancy offered a salary of €29,000 per year.

Why did no one apply for the original vacancy?
The low salary offered for a senior legal role requiring five years of experience discouraged applications.

How many other government roles does she hold?
She holds three other positions, including roles at the Lands Authority and Victims Support Agency.

Has her contract been renewed?
Yes, it was extended for another year in the summer of 2024.

Did the Finance Ministry review the terms of her contract?
No, the request was approved without objections or further scrutiny.

What are some past controversies involving Justyne Caruana?
She resigned twice from Cabinet positions, one linked to her husband's ties to a murder suspect, and another over a questionable contract to her partner.

How much does she earn annually from all her government roles?
Approximately €180,000, which is triple the declared salary of Prime Minister Robert Abela.